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REPORT 

OF THE 

SPECIAL MISSION 

ON INVESTIGATION TO THE 

PHILIPPINE ISLANDS 

TO THE 

SECRETARY OF WAR 




^^ ^ M 



WASHINGTON 

GOVERNMENT PRINTING OFHCE 

1921 



REPORT 

OF THE 

II ESPECIAL MISSION 
ON INVESTIGATION TO THE 
PHILIPPINE ISLANDS 

TO THE 

SECRETARY OF WAR 




WASHINGTON 

GOVERNMENT PRINTING OFFICE 

1921 



ff 






Zj 



LIBRARY OF CONGRESS 

JAN 10 1922 

OOOUMtNTa ^„ ,,1 




CONTENTS. 



Page. 

Interesting data 5 

Historical sketch 12 

The Philippine people 17 

Present conditions 20 

Constabulary and public order 23 

Administration of justice 24 

Land titles 26 

Prisons 26 

Treatment of prisoners 27 

Provincial and municipal jails 27 

Public education 28 

Bureau of science 31 

Health and sanitation 31 

Lepers 32 

Insane '. 32 

Defectives 33 

Economic conditions 33 

Finances 35 

Philippine National Bank 38 

Public works 40 

Government in business 42 

Elections 42 

Legislation 43 

General conclusions 45 

Recommendations 4ft 

3 



COMPOSITION OF THE SPECIAL MISSION. 



Maj. Gen. Leonard Wood, Chairman. 
Bon. W. Cameron Forbes. 

ATTACHED. 

^C(yl. Frank R. McCoy, Chief of Staff. 
Mi. Ray Atherton, Department of State. 
Lieut. CoL Gordon Johnston. 
-Maj. Edward Bowditch, Jr. 
Lieut. Commander Stewart F. Bryant. 
Prof. H. Otley Beyer, University of the Philippines, 
Maj. Robert C. Cander, Aid-de-camp. 
Mrst Lieut. Osborne C. Wood, Aid-de-camp. 



INTERESTING DATA ON THE PHILIPPINES. 



*Population.-Total population, 1903, 7,635,426; 1921, 10,956^000; 
Christian, 9,350,240; Mohammedan, 434,868; Pagan, 540,054; Bud- 
dhists, 25,568. Foreigners: Americans, 6,931; Spanish, 4,271; Brit- 
ish, 1,202; Chinese, 55,212; Japanese, 12,636; all others, 2,893. 

Physical.— Number of islands, approximately, 3,000. Total area, 
115 026 square mHes. Total area under cultivation, 11,503 square 
miles (10 per cent), valued at $229,000,000. Total area of forest 
land of commercial value, 64,800 square miles, 99 per cent of which 
belongs to the Government. Number of Provinces, 49. dumber of 
municipalities, 829. Estimated total wealth of islands, $5,500,000,000. 

Educational.-Number of public schools, 6,493. Total enrollment 
of pupils, including private schools, 1,020,000. Degree of literacy 
(about) 37 per cent. Having received primary mstruction, 35.9 per 
cent- having received secondary instruction, 0.89 per cent; superior 
instruction, 0.13 per cent. Number of teachers (of whom 501 are 
American) , 18,134. Number of colleges and universities, 17. l^nroll- 
ment of students in University of the Philippines 4,130. Number of 
students attending colleges and schools in the Umted States, 2,700 

Health. — 



Year. 



Death rate. 



Manila. Provinces. 



45.57 
22.58 
26.47 



26.10 

18.85 

♦20,73 



Birth rate. 



Manila. 



33.80 
33.25 
43.54 




Provinces. 



40.06 

39.34 

*36. 54 



Infant death rate. 



Manila. 



801.86 
322. 46 
213. 02 



Provinces. 



203. 71 

147. 55 

* 160. 71 



* Estimated. 

Financial-Income of Philippine Government, 1920, $40,500 000. 
Tax per capita, $3.96. Trade with United States (imports and ex- 
ports) 190l, $17,907,141; 1920, $197,506,041 Persons rendermg 
LomUax rUums for 1920. 9,519 (Americans, 1,434; Chmese, 3,123, 
Filipinos, 3,667). 

'Estimated, Except for 1903. 



6 REPORT SPECIAL MISSION ON INVESTIGATION 

Newspapers. — Daily newspapers published, 45; total circulation, 
131,400. Weekly and other publications, 69; total circulation, 
195,700. 

Suffrage. — Number of votes cast general election 1919, 672,122. 
Women do not have the suffrage. 

Languages. — Number of distinct dialects spoken, 87. Number of 
ethnographic groups or tribes, 43. 

Roads. — Miles of railroad under operation, 755; miles of roads rated 
as first class, 2,920. 

V ^ Historical. — About 200-1325 A. D., dependency of various Hindu- 
Malayan empires in Indo-China, Sumatra, and Borneo; 1325-1405, 
subject to Javanese empire of Madjapahit; 1405-1440, governed by 
China (under Ming emperors) ; 1440-1565, Northern Luzon subject to 
Japan; from Manila south, subject to Mohammedan Borneo; 1565- 
1762, subject to Spain through Mexico (paid tribute to Japan 1592- 
1623 to avoid invasion by the Shogun Hideyoshi); 1762-1763, seized 
by England but restored to Spain by the treaty ending the Seven 
Years War; 1763-1898, subject to Spain (through Mexico until 1821 
aud to Spain direct after that date); 1898-1921, under American 
sovereignty; military government, 1898-1900; Philippine Commis- 
sion, 1900-1907; Philippine Commission (American majority) and 
Assembly, 1907-1913; Philippine Commission (Filipino majority) and 
Assembly, 1913-1916; elected Assembly and Senate, under Jones 
bill, 1916-1921. 



REPORT OF THE SPECIAL MISSION ON INVESTIGATION TO 

THE PHILIPPINE ISLANDS. 



The Secretary of War, 

Washington, D. C. 
Sir: We have the honor to submit the following report of the 
special mission to the Philippine Islands. The purpose and instruc- 
tions of the mission are set forth in the following letters : 

The White House, 
Washington, March 20, 1921. 
. My Dear Mr. Secretary: In the message transmitted to the Congress on the 7th 
of December. 1920, President Wilson said: 

' ' Allow me to call your attention to the fact that the people of the Philippine Islands 
have succeeded in maintaining a stable government since the last action of the Con- 
gress in their behalf, and have thus fulfilled the condition set l)y the Congress as 
precedent to a consideration of granting independence to the islands. I respectfully 
submit that this condition precedent having been fulfilled, it is now our liberty and our 
duty to keep our promise to the people of those islands by granting them the independ- 
ence which they so honorably covet.' 

The suggestipi) made was not acted upon by that session of Congress. Undoubtedly 
that nonaction was due to the fact that all of the evidence available to Congress was not 
of this same tenor. Based, however, as it was, on official reports from the highest 
authority in the Philippine Islands, as well as on current reports from lesser authorities 
given the wddest circulation in the United States, as well as in the islands, it can not, 
\Nith propriety, be ignored, nor yet can it, in the face of conflicting evidence from 
many sources, be accepted as the final word on so important a subject. 

I have, therefore, selected Gen. Leonard Wood and W. Cameron Forbes to go to the 
Philippine Islands and to make there a study of the situation and to report thereon, in 
order that I may have a judgmcTit on which I can base my action and my recommen- 
dations with a consciousness that I am dealing iu>tly \\-ith the Filipino people and 
pursuing a policy which the American people will sanction and support. 1 have dis- 
cussed this subject with you and will ask you to give such instructions as may insure 
to them every convenience and assistance in their most important undertaking, and 
to give to them such instructions as \nll insure a full understanding and a frank report 
of the problem submitted. 

Very sincerely. 

Warren G. Harding. 
The Secretary of War. 

War Department, 
Washington, March 23, 1921. 
Maj. Gen. Leonard Wood, 

Chairman Special Mission to the Philippine Islands. 
Sir: I beg to hand you a copy of a letter from the President briefly giving the object 
of your mission to the Philippine Islands. 

I have acquainted the Acting Governor General and the commanding general of the 
Philippine Department wath the fact of your foming, and have directed them to place 

7 



8 REPORT SPECIAL MISSION ON" INVESTIGATION" 

at your disposal every facility and convenience that may be of assistance to yon in your 
work. 

It is asserted with positiveness by persons who have had every reasonable oppor- 
tunity to know the conditions whereof they speak that the Philippine Government 
is now in a position to warrant its total separation from the United States Govern- 
ment and that the Filipino people are in a position to continue to operate the Philip- 
pine Government without aid of any kind from the United States and that the Gov- 
ernment so conducted would be one in which the American people could take pride 
because of the assistance heretofore given it. 

All of this is quite as positively denied by other persons having similar oppor- 
tunities to study the situation and to know the exact conditions existing in the 
Philippine Islands. 

Between these conflicting views you are to render judgment. 

The decision of the question tlius arising is of momentous importance, involving, 
as it may, the very life of the Filipino people as a people and the reputation and 
credit of our own country. Even if it were possible hereafter to correct an error 
now made, it would be difficult to measure the cost of this correction. 

Every consideration, therefore, urges us, before taking a step of importance in 
this matter, to satisfy ourselves that we are not acting through emotions, but are 
acting wisely as the facts present themselves to us after a careful impartial study. 

I am not unaware that your experience peculiarly fits you and Gov. Forbes for 
the task that you are undertaking and render detailed instructions superfluous if 
not embarrassing. Nevertheless, I desire to suggest briefly the doubts which I 
should like to have cleared up for my personal satisfaction, and these may, in a 
degree, indicate to you the doubts of others who are interested in the subject but 
whose minds have been confused by conflicting reports and rumors. 

There are, naturally, many points of great importance in passing^ on our future 
policy with reference to the Philippine Islands about which there is no doubt and 
with reference to which, therefore, there need be no detailed study. The general 
characteristics of the Filipino people, their many attractive qualities, their pro- 
gressive spirit, love of education, and their rapidly developing spirit of nationality 
are no longer questions. 

The maintenance of a government, however, in a territory so situated as the Philip- 
pine Islands involves many problems not dependent entirely on these accepted 
qualities. 

In the instructions of Mr. McKinley for the guidance of the commissioners sent 
to the Philippine Islands in 1900, he said: 

"In all the forms of government and administrative provisions which they are 
authorized to prescribe, the commission should bear in mind that the government 
which they are establishing is designed not for our satisfaction, or for the expression 
of our theoretical views, but for the happiness, peace, and prosperity of the people 
of the Philippine Islands, and the measures adopted should be made to conform 
to their customs, their habits, and even their prejudices, the fullest extent con- 
sistent with the accomplishment of the indispensable requisites of just and effective 
government." 

There is to-day no better guide for a judgment of the adequacy of the Philippine 
Government as it now exists or as it would exist as an independent government. 

In passing now on the question of the stability of the existing government in the 
Philippine Islands if American support should be withdrawn therefrom and of the 
probability of the permanence of such a government thereafter and the likelihood 
that such a government would protect the people in their essential rights and privi- 
leges, the standard should not be one of perfection from our point of view, but the 
standard outlined in the instructions of Mr. McKinley. 



TO THE PHILIPPINE ISLANDS. 9 

We can not neglect, in considering the question of the maintenance of a govern- 
ment in the Philippine Islands, the financial condition of the people. A study of 
the situation must embrace, therefore, a first-hand examination of the financial con- 
dition of the Philippine Government and of the Filipino people — the present and 
prospective revenues of the Government and the extent to which these revenues 
are dependent on the present relation of the islands to the United States. 

Of even more importance than the economic position of the Government is that 
of the people. A careful study should be made of the effect on the people of treating 
their products in the American market as those of a foreign country, as well as, on the 
other hand, such disadvantages as may accrue to them as the result of the free entry 
of American goods in their markets. 

Passing now from the economic question, attention should be directed to the 
likelihood of the maintenance of a stable government in the Islands as this likeli- 
hood may be determined from evidence drawn from the operation of the existing 
government. 

It is unnecessary to review the steps in the development of the existing Govern- 
ment. It is sufficient to say that it is most liberal in its concession of powers to the 
Filipino people. The legislature to which is given general legislative powers is 
purely Filipino, both as to its elective members and as to those few appointive mem- 
bers designated by the Governor General to represent the interests of the non-Christian 
people of the islands. The judiciary, with the exception of the Supreme Court, is 
almost exclusively Filipino, the executive officials of the Government in the munici- 
palities and provinces are exclusively Filipino, and in the central government are 
largely so, the exceptions being the Governor General and the Vice Governor. But 
few of the ministerial officers are now American, and of the supreme court the chief 
justice and three of the eight associate justices have generally been Filipinos. 

The Government thus constituted is the one to be studied as the basis of judgment. 
Of the first importance it should be determined whether or not this Government has 
contributed duly to the happiness, peace, and prosperity of the Filipino people, 
and the determination of this question must necessarily depend largely on the views 
of those people. 

It should be determined whether or not the Government is reasonably free from those 
underlying causes that result in the destruction of government. Is the government 
effectively administered; are the officials and employees reasonably faithful to the 
trust imposed upon them; is justice impartially administered; are the elections con- 
ducted honestly so that the public will receive expression in the selection of elective 
officers; are the results of the elections generally acquiesced in by defeated minorities 
are the civil service laws honestly administered ; and are appointments to office and 
to employment under the Government made as a result of competency? 

The effect of extension of powers to Filipinos in their own Government should be 
carefully scrutinized, and it should be determined whether such extension results 
in a lowering of the standards of government and whether such lowering, if it exists, 
decreases with the experience of the Filipino so charged with responsibility, or if 
there is a steady relaxation of effort and a more marked deficiency as we recede from 
the previous standard. The result of Filipinization on the important services of edu- 
cation, health, public works, and agriculture should be noted and given due weight 
in a final determination of the problem submitted. 

In passing on the questions thus presented, it is necessary to avoid comparison with 
a standard of other countries and other climates and particularly with our own idea 
of perfection. 

It should be remembered that our obligations are to all of the people who inhabit 
the Philippine Islands, and in a particular manner, because of their relative helpless- 
ness, we are committed to look after the welfare of the backward people of the islands — 
Christian, Moro, and Pagan. The keeping of our faith to these people has been 
77622—21 2 



10 EEPOKT SPECIAL MISSION ON INVESTIGATION 

committed to the present Philippine Government. How has this faith- thus com- 
mitted been kept, and what is the outlook for the future? 

The Filipino people have for ages, due to the fact that the sovereignty of the Philip- 
pine Islands rested first in Spain and then in the United States, been protected in 
the ownership of territory and potential wealth out of all proportion to that of their 
neighbors. It is important to determine whether reasonable plans exist for the utili- 
zation of these resources by the Filipino people in order that their unused land and 
resources may not continually be a source of temptation to their less fortunate but 
probably stronger neighbors, and whether on the withdrawal of a strong sovereignty 
from these islands these resources would remain exclusively available to the Filipino 
people. 

Certainly it would be a vain thing to turn the Philippine Islands over to the Filipino 
people without reasonable assurance that the resources of the islands would remain 
the heritage of the people of the islands. The pleasing of the Filipinos of this genera- 
tion would be a minor satisfaction if it were believed that it would result in the bond- 
age or destruction of the Filipino people for all time hereafter. 

Your selection by the President for this work is the best assurance of his desire 
that it should be impartially done, without prejudice, fear, or favor. Likewise it 
is an assurance that it will be undertaken and carried out with an appreciation and 
a delicate regard for the feelings of the Filipino people. Whether the result of your 
investigation may or may not be to the satisfaction of the majority of the Filipino 
people at this time, I am convinced that,, undertaken in the spirit in which it is 
committed to you and in which you have undertaken it, it can not but be to the 
future satisfaction of the Filipinos and must, of necessity, result in their permanent 
well-being and progress. 

Very sincerely, 

John W. Weeks, 

Secretary of War. 

Arrival. ^]^g special mission, as above constituted, arrived in 

Manila on May 4, 1921. Attached to and assisting the 
Personnel. mission was a representative of the State Department, 
secretary of the legation in Peking, who had also served 
for some years in the embassy in Japan and is generally 
familiar with international affairs in the Orient; a staff 
officer of the admiral commanding the Asiatic Fleet 
• who had served some years in the Orient; and Spanish- 
speaking officers of the Army experienced in Cuban, 
Philippine, and foreign affairs generally, three of whom 
had had prior and long service in the islands both in 
civil and military establishments, in executive and 
administrative work, and as members of legislative 
councils. Two of these officers had also accompanied 
the Harbord mission to the Near East, 
spondents. ^°"^' During the travels of the mission throughout the 
islands they were accompanied by an experienced 
correspondent of the Associated Press, a special corre- 
spondent of one of the leading American dailies com- 
mitted to giving independence to the Philippine people; 
and, as the representative of the Filipino press, one of 
the editors of the leading Manila journal who, during the 



TO THE PHILIPPINE ISLANDS. 11 

insurrection against Spain and the United States, had 
been an officer in Aguinaldo's army. 

The attached members of the mission and the corre- 
spondents represented a wide variety of opinions. 

From the moment of its arrival in Manila, the mission 
received every assistance from the Acting Governor 
General, the commanding general, the admiral, and their 
staffs; also from Americans throughout the islands; and 
from the Philippine people and their political leaders 
generally, many of whom gave the benefit of advice and 
suggestions in the most cordial and friendly spirit. 
Their assistance has been coupled with a sincere and 
charming hospitality which continued to the last moment 
of the mission's stay. 

During^ these four months in the islands the routine „^of|f«'"^".c^t^ i" 

°, , , , Manila with all 

of the mission consisted of periods of about a week in Jl^jse^^.. ^nd na- 
Manila, during which conferences were held with officials 
of the Central Government, with representative Amer- 
icans, Filipinos, and foreigners of every walk of life. 
Investigations were undertaken looking to a thorough 
analysis of the Government and its activities, followed 
by periods of from two to four weeks of investigation in 
the Provinces. During these trips 48 of the 49 Provinces! Provinces vis- 
into which the islands are divided were visited. The 
mission has aggregated 11 weeks of travel by sea, auto, 
horse, and rail, and has held conferences in 449 cities and 
towns. All parts of the archipelago were visited and ^ n S"'^ fort"y-nine 
your mission feels it has placed itself in intimate touch ^^^^^g^j^^^ ^^^"^'"^ 
with the great mass- of the Philippine people — Christian, 
Moro, and pagan — and with practically all Americans 
and foreigners domiciled and doing business in the prin- 
cipal cities and towns of the islands. 

Too often there has been a marked disinclination on Frank state- 
ment opposing 

the part of individuals, especially Filipinos not in sym- ijjd^ep^ende^nce 

pathy with immediate or absolute independence, to state 

their- opinion openly, for the reason that they feared loss 

of standing or persecution if they did so. Their fears 

were very genuine and, unhappily, there is evidence that 

their apprehensions were well grounded. 

When practicable, important administrative investiga- Personal ad- 

r J r n ministrative iii- 

tions were made, with the knowledo:e and assistance of vestigations 

' ° , , made. 

the Acting Governor General and his assistants. The 
mission and its attached members, however, personally 
visited administrative and judicial offices, the courts 
(including justices of the peace), schools, hospitals, jails. 



12 REPORT SPECIAL MISSIOIT ON" INVESTIGATION 

and other public institutions throughout the islands and 
feel they have completed a thorough and careful survey 
of the Government, the people, and their institutions-. 
As a result it has been able to form definite conclusions 
on the general subjects and upon the conduct of the 
Government. ^ 

The date of the arrival of the mission at the various 
towns and cities was made known well in advance, in 
order that there might be ample time for the preparation 

Cordial reception, of petitions, memorials, and addresses. Almost without 
exception the officials and people of the regions visited 
paid great attention to the reception of the mission. 
The roads and streets were decorated with arches, gener- 
ally bearing the word ^'Welcome," followed by a state- 
ment that the people desired their independence. 

dep^ndence^.'^ ^^^ '^^^ public assemblies to greet the mission and present 
addresses and memorials were usually of a size which 
indicated a keen interest in the question of independence. 
The people were attentive and quiet, but there was a lack, 
due in part to racial reserve, of that exuberant enthusi- 
asm which so often marks the public discussion of ques- 
tions of national import. 
Speakers from The proportion of Speakers representing business and 

younger genera- ■ ^: i i- i ii rm • -x 

tion. agriculture was relatively small. Ihe majority were 

from the younger generation. 

^ HISTORICAL SKETCH. 

hitherto ^always ^^ Considering the question of granting independence 

dependent. ^^ ^]^q Philippine Islands, it is of interest to note that 

they have always been a dependent group under the 

influence of a stronger power. It is appropriate to re- 

javanese Empfr?) view briefly their history. Previous to 1400 the islands 

had been subject to Hindu-Malayan empires in Sumatra, 

Indo-China, and Borneo ; at that date they ceased to form 

an integral part of the Javanese Madjapahit Empire. 

of Moha,mmeda°> Shortly after 1400 Mohammedanism was introduced, 

'^"^" but politically the islands were subject to China during 

the reign of the ambitious Ming emperors. 

The first Europeans who visited the Philippines were 
Portuguese, about 1517, and Spaniards, in 1521, The 
century preceding the European discovery had been one 
of the most eventful periods in the history of the islands. 
In addition to the Chinese attempt at political as well as 
commercial domination, the Japanese entered the islands 
in the north and the Mohammedans of .Brunei (Borneo) 



First Caucasians. 



TO THE PHILIPPINE ISLANDS. 13 

in the south. At the time the first permanent European 

colony under Spain was estabhshed, in 1565, all of the 

islands as far north as Manila were subject to Borneo gjj^^^^*®^ ^y 

and, it is said, paid tribute equal to about 1^ liters of gold 

per annum. While the Japanese and Chinese were also 

settled in Manila, the strongest Japanese influence was 

in the north of Luzon, from which they were driven by Japanese driven 

the Spaniards in 1582 with the conquest of their f ortified ^'^"^ ^^'°''' 

trading stronghold in the Cagayan Valley. 

The chief cause of Japanese interest in the islands was Japanese com- 
their search for rare pottery, gold, and pearls. leoo. 

The first permanent Spanish colony was founded in j^jJ^J^Jq^I* ^p^J- 
Cebu in 1565, and Manila was conquered in 1570. Span- iii^a taken. 
ish records state that in 1600 there were some 25,000 j^f^^P^f^^i^JgoQ ^^ 
Chinese and 1,500 Japanese in Manila alone, but of these 
2,300 Chinese were massacred in the year 1603 by the 
Spaniards, fearful of their numbers. There were three (.^^Ig^'"®^ °^ 
subsequent massacres of Chinese by the Spaniards for the 
same reason. During the next two decades the coastal jgjJ^^^Pj.®^®^^^^" 
regions of almost the entire archipelago were brought 
under Spanish control. 

• The Spanish government of the Philippines was placed ^j.^^^^^^^ sov- 
under the viceroy of New wSpain (Mexico) and all com- 
munications were through him. A captain general was* 
at the same time military commander and head of the 
civil government. The main purpose of the Spaniards g^^JjP^Q^^^^^^ 
in the Philippines was the search for treasure, commerce *^°"- 
and the spread of Christianity; but they soon discovered 
that the amount of treasure obtainable in the islands was 
limited, and, although a constant expense to both the 
Governments of New Spain and Spain, they were re- 
tained to spread the Christian religion. 

In 1592 the Shogun Hideyoshi of Japan demanded j^j^/™^^^^ of 
that the Spanish government of the Philippine Islands 
pay annual tribute and acknowledge the sovereignty of 
Japan. The Spanish government was loath to do this, 
but due to shortage of men and ships and lack of support 
from New Spain, was forced to acquiesce to the extent 
of paying tribute, which was actually paid on several Tribute, 
occasions during a period of from 15 to 20 years. 

Spanish control continued in the Philippines until j^j^p^^^ controls 
1898, although the Portuguese, Dutch, and British tried 
at various times to overthrow the Spanish power. All 
these efi^orts were unsuccessful, though the British cap- tiOT^of^ManS^ 
tured Manila and ruled it for three years under Alexander 
Dalrymple, in the middle of the eighteenth century. 



14 REPORT SPECIAL MISSION ON INVESTIGATION 

ialo?''of°vSSs From these various partial conquests of the Phihppine 

racial influences. Islands there remains to-day a strong influence on the 
native customs, language, and religion — the Moham- 
medan religion, from Indian and Arabic sources, a domi- 
nant Chinese influence in commerce and trade, Christi- 
anity, Koman law, and many features of occidental civil- 
ization from Spanish sources. 

tr^?stabu?heT' American control in the Philippines began during the 
War with Spain, but was not firmly estabhshed until 1 900. 
Races. Kacially, the mass of the Filipino population is of 

Malayan stock, though other types are to be found, 
especially among the 10 per cent of non-Christians. 
Chinese and Spanish race mixtures are common among 
the wealthy and better-educated classes, this mixture 
seeming to strengthen the native stock. The inhabitants 
of Borneo, Sumatra, Java, Formosa, and, to some meas- 
ure, Indo-China (the Malay groups^ are racially the most 
nearly related to the Filipinos. 

Whatever may be said of Spain's methods (and too 
much is said without knowledge), the fact remains that 
she implanted the Christian religion and European ideas 

, foundations and methods of administration in these islands and laid 

laid by Spain, i j. i • i • i i 

the foundations which have been of far-reaching value 
in our work here. From a number of warring tribes, 
Spain succeeded in welding the Philippine people into a 
fairly homogeneous group, sufiiciently allied in blood and 
physical characteristics to be capable of becoming a 
people with distinctive and uniform characteristics. 
Spain did not, however, seriously undertake to give 
Language. them a commou language, and although most of the more 
progressive and intelligent people managed to learn Span- 
ish, no eflective effort was made to make it a common 
language for the different groups, who continue to this 
day speaking many distinct dialects. There are eight 
languages in the islands, each of which is used by not 
less than 500,000 people, and some seventy-odd more 
which are used by smaller groups. Some differences be- 
tween these dialects are slight enough so that people 
using different ones can make themselves understood, 
but many are so radically different that they are mutually 
unintelligible. 
uSted^^^statS The United States obtained possession of the islands by 
^^^^- conquest in 1898. The islands were formally transferred 

to the United States by Spain in the treaty of Paris, 
Treaty of Paris. Almost immediately President McKinley announced 



TO THE PHILIPPINE ISLANDS. 15 

that the PhiHppine Islands were not to be exploited for 
the aggrandizement of the American people. 

The Philippines are ours not to exploit, but to develop, to civilize, -^ ^? '^ih-r" 
to educate, to train in the science of self-government. This is the pines. 
path which we must follow or be recreant to a mighty trust committed 
to us. 

The 23 years of American occupation may be divided Periods of 

T n n ' p T • -1 American occu- 

mto the lollowmg lour distinct periods: pation. 

First, the military period, from August 13, 1898, to jg^^^^igfyp^nod, 
July 1, 1901. During this period the islands were under 
a military governor and the insurrection against the insurrection. 
United States, headed by Gen. Aguinaldo, was being 
suppressed. United States troops went to the Philip- 
pines in large numbers, and the first problem confronting 
the Government was the establishment of public order. 

In spite of the continuance of military operations, ment estabS'^S 
substantial beginnings were made in the establishment 
and maintenance of a civil government, particularly in 
establishing respect for the authority of the United 
States; in the opening of schools, in which the first teach- ^^^^^ schools. 
ers were noncommissioned officers of the Army; in the 
establishment of the judiciary, and also in the matter of 
public health and public works. Organization Order No. 
58 of 1900 of Gen. Otis laid broad and secure foundations ^®°- ^^is. 
for the establishment of civil government. 

Second, the organization period, from July 1, 1901, tOj^g^ffgJ^ p^™^' 
October 16, 1907, in which the sole legislative body of 
the islands was the Philippine Commission, appointed byg^j^^^^^^.^jlj.^^ 
the President of the United States. In this period much ^°^>'- 
constructive work was done, the creation of a working 
government was undertaken, a public school system or- Public schools. 
ganized, 5,000 schools were opened with 7,671 teachers, 
and an enrollment of 400,000 children, about one-fifth of 
the children of school age in the Philippine Islands, a 
census taken, the judicial system organized and the pro- Judicial sys- 
cedure adopted, a currency system established, public currency sys- 
works started on a systematic basis, health service rcor- Health service. 
ganized and put in more effective condition, and in gen- 
eral the structure of government built on secure founda- 
tions. Govs. Taft and Wright, members of the original Govs. Taft and 

. Wright. 

commission, were the governors responsible for most of 
this work. 

Third, the constructive period, from 1907 to 1913. In Third period, 

1907—1913. 

this period one-half the legislative powers, namely, the 
lower house, were turned over to a body of elected Fili- 
pinos, known as the Philippine Assembly, the commission legisMure."^"^ 



16 EEPORT SPECIAL MISSION ON INVESTIGATION 

becoming the upper house, or Senate. This, with the 
proviso that in case of disagreement between the two 
bodies as to appropriations the previous appropriation 
bill should carry over. On three occasions the two houses 
failed to agree on the appropriation bill and the previous 
bill was carried over without any great injury accruing 
PubUc works. ^^ ^^iq public servicc. During this period a broad and 
practical public works program was laid down and car- 
ried out involving the construction of roads, bridges, port 
improvements, irrigation works, schoolhouses, markets, 
and other public buildings. Artesian wells were driven. 
Practical and effective negotiations were entered into for 
the financing and construction of railroads and for en- 
Transportation, couraging interisland transportation. Steamship subsi- 
dies were established, and a large number of lighthouses 
were built. A comprehensive cadastral survey of the 
islands was undertaken, and many other constructive 
enterprises, which met with the cordial appreciation of 

proves?.* ^°^^^ the Philippine people. In this period the University of 
the PhiUppines was founded, also many professional 
schools, and the policy of the general extension of educa- 
tion was continued. 

gradual^ ^particii Throughout these three periods the policy was estab- 

p^ingoverni|.gj^^^ and followcd of utiHziug Filipinos in the Govern- 
/ ment on the general principle of putting them in the less 
j responsible positions — ^which was proper, as they had 
I little experience— and carefully training them for pro- 
motion and working them up as rapidly as their efficiency 
and training proved, through protracted periods, justified. 
At the end of this period the proportion of Filipinos in 
the service was 72 per cent, as against 28 per cent 
Americans. 

m^S. ^'''°^' Fourth, the period of Filipinization, 1914 to 1921. 

The first step taken by the new administration was to 

Control of gov- givc the Filipiuos a majority of the commission, or upper 

piSS!"^* ^^ ^^^'' house. The second was the passage of what is now the 
Jones biu. fundamental law of the islands, known as the Jones bill, 
Sixty-fourth Congress, Act No. 240, approved August, 1916. 
Legislative Under it the Christian and civilized Provinces were per- 
mitted to elect a Senate and a House, and the Governor Gen- 
eral authorized to appoint representatives for the non- 
Christian portions of the islands, the legislature having 
legislative control over the whole archipelago. During this 
period the administration deliberately adopted the policy 

Americans dis- of ffcttinff rid of most of the Americans in the service, corn- 
charged. & & 111 • i. 
petent and otherwise, and made the service so unat- 



TO THE PHILIPPINE ISLANDS. l7 

tractive that very few remained, until at this writing the 
percentage of Americans in the service is only 4 per cent, j 
\96 per cent being Filipinos. The orderly process of 
prdhidtioTFor proved efficiency from the less important 
positions was changed to a hurried Filipinization, placing j.^f^^^Jj°i='^^^°^ 
Filipinos in nearly all of the higher positions. Many, 
including some of those selected for judges, were chosen 
apparently without due reference to their training or 
experience. 

Great emphasis was laid during this period, particu- 
larly toward the end, on the extension of education, ^^^f^J^^^^^^^i^^ 
many new schools of all grades being established and the ^'^^^sed. 
enrollment in the public schools being brought up to the 
present high figure of 945,000, or double what it had.j^^^^^^^^gO; 
been at the beginning of the period, more children of 
school age finding an opportunity to go to school than 
ever before. There are also about 75,000 children in 
standard private schools, or a total of over 1,020,000 
in school. 

Further progress was made in public works, particu- increase in 

1 T 1 • 1 T • 1 • /• • n public works. 

larly public buildmgs, extensive boring of artesian wells, 
construction of new hospitals, etc. 

The period was marked, however, by a deterioration , Administration 

^. .'. T J becomes top- 

in the quality of public service by the creation of top-^^^^y- 

heavy personnel, the too frequent placing of influence , 

above efficiency, by the beginning of a political bureau- 
cracy. In this period, taxation and expenditures were increased taxa- 

%i tion and expend! - 

increased. tures. - 

THE PHILIPPINE PEOPLE. 

The Philippine peopl^^ossess many fine and attractive ^^.9^*^ charac- 
quanties — dignity and self-respect, as shown by deport- 
ment, complete absence of beggars, personal neatness 
and cleanliness, courtesy and consideration to strangers 
and guests, boundless hospitahty, willingness to do 
favors for those with whom they come in contact, which 
amounts almost to inabihty to say '^No^' to a friend. 
They are happy and care free to an extent seldom found 
among other peoples, keen to own their land, strongly 
attached to their homes and their children, proud of and ^o^^^sticufe. 
devoted to their beloved Philippines; they are free from Patriotism, 
worries arising from international difficulties and respon- 
sibilities, they are refined in manner, filled with racial 
pride, light-hearted and inclined to be improvident, as 
are all people who live in lands where nature does so much 
77«22— 21 3 



18 EEPOKT SPECIAL MISSION ON INVESTIGATION 

and people require so little. In many positions they 
have shown marked capacity and have done better than 
could reasonably be expected of an inexperienced and 

high^%^os?tioal untried people. There are many holding high positions 

With credit. j^^ ^j^^ judicial, executive, and educational departments 
who would be a credit to any government. Th'ey are 
proud, as they well may be, of the advance they have 
made since the beginning of American control of the 

progresr^^^^^^^ Islauds, for it can be safely stated that no people, under 
the friendly tutelage of another, have made so great a 
progress in so short a time; for 23 years is but a brief 
time in the development of a people. 
Mentality. They possess active minds, their children are bright 

and precocious and learn rapidly. The whole people 
have a consuming thirst for education, and, as is com- 
mon among those who have had little opportunity and 
ccupa ions, j^^^j^ hard work, there is a leaning toward the learned 
professions or occupations which do not involve severe 
manual labor, and a tendency to underestimate the im- 
portance of agriculture and the dignity of labor, and to 
overestimate the standing given by the learned profes- 
sions. 

support^oVpub/i? Their support and aid in the building up of public 
education is beyond praise. They have sacrificed much 
^ that their children might be able to go to school, and the 

interests of an entire family are often subordinated to 
sending the selected member to a higher school or uni- 
versity. Schoolhouses are often constructed by volun- 
tary contributions of labor, money, and material. 

un^ducateT"^^" There is a serious lack of educated public opinion, for 
as yet the PhiUppine public is^iot a reading public, and 
Press. there is a lack of a strong, independent press, although 

there has been a great advance in this respect during re- 
cent years, and there are several outstanding independent 
papers of great local influence. The daily total circula- 

tionT^^ "^^'""^^-tion of all island papers is a Httle less than 140,000, and in 
the remote Provinces people still depend largety upon the 
circulation of news by word of mouth. 

^mpinos brave The Philippine people are readily led by those who 
understand them. They make brave soldiers, and under 
Easily led, good leaders make excellent troops. Due to the lack 
of a well-informed public opinion they are easily swayed 
by their leaders. 
Sanitation. j^q ^ result of generations of disregard for sanitary 

measures, they are still rather oriental in their attitude 



TO THE PHILIPPINE ISLANDS. 19 

toward disease and questions of public health and sani- 
tation. This indifference is being rapidly corrected. 

The Filipino woman is a strong and dominating in-^^^^^ Fmpino 
fluence in every home and community; she is modest, 
loyal, and hardworking, and while not much in evidence 
she is nevertheless ahvays to be reckoned with. She is 
the strong conservative influence which keeps together 
the home, saves the money, and is the foundation of the 
success of many families. The establishment of large 
numbers of women's clubs, that concern themselves with women'sciubs. 
hygiene and other civic matters, is a most encouraging 
sign of the times. • 

The mass of the Philippine people are and always have industries, 
been agriculturists or fishermen. They have not in the 
past been active in commerce, except in small stores 
principally run by the women, although at the present 
time they are taking a constantly increasing part in the jngy^-^'j.^g^jj^' 
commercial affairs of the islands. 

They have, however, a long road to travel before the 
bulk of the business done in the islands is in their hands, 
as most of the retail stores, the import and export busi- Americans and 

n •I'i.'i.i.- J i.' • j.\. foreigners still 

ness, nnancial mstitutions and corporations are m the control financial 

ijn. . ji?- -n m-- institutions. 

hands oi Americans and loreigners, especially Chmese. 

In many sections the heads of the old families, who Feudal system 
were almost feudal in the extent and method of control, ^^^pp^™^- 
still exercise a dominant influence and are able ^o impose 
their will upon the people. Happily, as education pro- 
gresses, this condition is steadily lessening. 

The people are mostly Roman Catholic, with predomi- Religion. 
nant Mohammedan groups in the southern islands, and 
various pagan groups, especially in Luzon, Mindanao, 
and Palaw^an. 

They are naturally an orderly and law-abiding ^^ij^suuctiv^eiy 

people. 

The numerous languages and dialects, the separation .^^-ack^o^soudar- 
of the people into groups livine: on the islands, the lack graphical and 

^^ .,°.^..° . ,. ethnological rea- 

of a press of wide circulation, printed m a common sons, 
language, have delayed the building up of a common 
tongue wdth the resulting spirit of solidarity. 

They possess marked ability in many fields of effort, 
an ability which is not as apparent as it would have been 
had not all the intricacies of a highly organized repre- 
sentative form of government been imposed upon them 
with too great rapidity. 

The Philippine people represent the most advanced representauv e 
experiment in the establishment of representative laJI^™^"^^ '^ 



20 KEPOKT SPECIAL MISSION ON INVESTIGATION 

government in the East, and in our endeavor to establish 
it, complete in all its details, we have in many instances, 
by the rapidity of our procedure, overtaxed the ability 
of the people to absorb, digest, and make ejSicient prac- 
tical use of what it has taken other nations generations 
to absorb and apply, and in our critical impatience we 
forget the centuries of struggle through which our own 
race passed before it attained well-balanced government. 

PEESENT CONDITIONS. 

menr^^^^°^^^" There has been a progressive transfer of government 
to the people of the islands, and at the present time it is 
very largely in their hands. So extensive has been the 
transfer that many fail to realize that there still con- 
tinues in the islands a decisive American control that 

American con- assures the maintenance of an orderly government, 
secure against disturbicg influences from within and 
without. 

In view of the difficult situation which existed after 
the insurrection, the difference in language, customs, 
and in conceptions of citizenship obligation, the prog- 

Progress since ress which has been made in the 23 years of American 

American occu- , , ^ ^ ^ ^ 

pation. occupation is extraordinary. It is a high tribute to 

Americans and Filipinos alike. The animosities have 
disappeared and there remains a spirit of confidence 

toward Ameri- and friendliness for the American people throughout 
the archipelago. Much has been done, but much re- 
mains to be done. 

ta^efflcSicy!^^^ While there has been retrogression in the efficiency 
of most departments of the government during the past 
few years, we do not feel that the responsibility for this 
rests solely upon the Filipinos or that they should be 
unduly blamed for such failures as have occurred, as the 

sponsiwfities. ^^' ultimate responsibility for the selection of responsible 
officers and for the exercise of proper supervision was 
in the hands of the American Governor General, whose 
duty it was to exercise due care to appoint competent 
men at the heads of departments and bureaus, and, 
above all, to exercise proper supervision over them. 

cy%urged.^°'^' A reversal of policy is not needed now, but time for 
the Filipinos, under careful but friendly supervision, to 
absorb and master what is already in their hands. We 
must remember that the good qualities of the people, 
their enthusiasm and their determination, can not take 
the place of experience. 



TO THE PHILIPPINE ISLANDS. 21 

We must build up an informed public opinion, a jj^J^^^^^jJ^*^- 
stronger spirit of civic responsibility and a better appre- 
ciation of- the obligations of citizenship. In this the 
island press has a vitally important part to play. The 
task of building up a truly representative form of gov- 
ernment is made much easier by the fact that the great 
bulk of the people are Christians, that they are free from Favorable 
caste distinctions, that although oriental in blood and 
birth they are essentially western in religion, form of 
government and in ideals and aspirations, and that their 
true sympathies and affiliations lie with the great 
Christian nations. 

The influence of our efforts to establish representative Au^nce ^f o?feJS 
self-government in the Philippines extends far beyond go^g^i^fi^f ^^'^" 
the Philippines. It reaches every part of the Orient 
where free institutions and representative government 
are the dream of the people. 

The great bulk of the Christian Filipinos have a very e^fence ^^ '^^^ 
natural desire for independence; most of them desire in- Majority favor 
dependence under the protection of the United States ; pendence. 
a. very small percentage desire immediate independence age°deiirr?epa* 
with separation from the United States; a very subs tan- ^^^^^°- 
tial element is opposed to independence, especially at ij^^^^ndlnce. ^** 
this time. The Moros are a unit against independence Moro opinion. 
and are united for continuance of American control and, 
in case of separation of the Philippines from the United 
States, desire their portion of the islands to be retained as 
American territorv under American control. The pasrans Pagan and non- 

*' Christian 

and non-Christians, constituting about 10 per cent of the 
population, are for continued American control. They 
want peace and security. These the Americans have 
given them. 

The Americans in the islands are practically a unit for tudrTn^^Pwup- 
the continuance of American control. p^^® islands. 

The people, as a whole, are appreciative of the peace 
and order which prevail throughout the islands. Many 
do not understand what independence means, or its re- st^ndkig^on ^il^ 
sponsibilities. They are living under the best conditions p®°^®°°® ^^"®- 
they have ever known. It is not generally realized that 
the American Government can not be expected to assume 
responsibility for the results of internal disorders, par- 
ticularly as they affect the nationals of other powers, the 
treatment of foreign capital, and external political rela- 
tions, unless the United States retains a certain measure 
of control. 



22 REPORT SPECIAL MISSION ON INVESTIGATION 

ca^^s^c?inmS '^^^ great work which the American commercial popu- 
gacifer^^^ ^^ *^^'lation and organizations have done in the islands should 
not be overlooked. It has contributed greatly to the 
betterment of conditions. They have built up and estab- 
lished business and credit from one end of the islands to 
the other. They have always been a strong force in the 
support of law and order, intensely American in senti- 
ment and, on the whole, a good, stabilizing, and helpful 
influence. At times they have been impatient, and 
justly so, with the discouragement of American business 
efforts, and there have been conditions which have given 
Superficial dis-risc to straiucd relations between individual Americans 
agreem n . ^^^ Filipiuos, but ucvcr resulting in any disturbance of 
public order. 
Influence for The American and foreign church missions and schools 
iSmerican institu- and charitable associations have done much to improve 
the spiritual and physical condition of the people, and to 
build up better relations between the Filipinos and 
Americans. 
Red tape. Generally speaking, administrative departments of the 

Government are top-heavy in personnel and enmeshed 
Bureaucracy, ^j^ j.^^ tape. There is a vast amount of paper work. The 
methods of the administration are purely bureaucratic. 
There is a lack of supervision and personal contact. 
a(SusSionin '^^^ general administration of the Philippine Govem- 
1913. ment in 1913, the period of greatest efficiency, was 

honest, highly efficient, and set a high standard of energy 
and morality. Inherited tendencies were being largely 
replaced by American ideals and efficiency throughout 
the Philippine personnel, but the time and opportunity 
were both too short to develop experienced leaders and 
direction in the new English-speaking and American- 
Leaders all thinking generation. Both the political and adminis- 
and^peakSg!^^^ trative leaders were still Spanish- trained and Spanish- 
speaking, and many are so to-day. 
Retrogression j^ ig the general opinion among Filipinos, Americans, 

m public services, ^ ^ ... 

and foreigners that the public services are now in many 
particulars relatively inefficient; that there has occurred 
a slowing down in the dispatch of business, and a distinct 
relapse toward the standards and administrative habits 
of former days. This is due in' part to bad example, 
incompetent direction, to political infection of the serv- 
vi^ionlndinspS-ices, and above all to lack of competent supervision and 
tion to blame, jnspection. This has been brought about by surrender- 
ing, or failing to employ, the executive authority of the 



TO THE PHILIPPINE ISLANDS. 23 

* 

Governor General, and has resulted in undue interference 
and tacit usurpation by the political leaders of the 
general supervision and control of departments and ^ Usurpation of 

or r- Governor Gen- 

bureaus of the government vested by law in the Governor ^^a^'^ authority. 
General. ^ .... . . ., 

Politics m civil 

Again, the legislature has passed laws tending to service. 
demoralize and introduce into the civil service the 
infection of politics. For example, numerous exemptions 
from the requirements of the civil service and many 
provisions for temporary employment. All these defects 
can and — unless we fail to understand the spirit of the 
legislature and the leaders — will be corrected in the 
islands. 

CONSTABULARY AND PUBLIC ORDER. 

Public order is maintained principally by the con- 
stabulary, a force of approximately 5,800 ofhcers and 
men. This organization has proved itself to be depend- unimpaired. '^" 
able and thoroughly efficient. In discipline, morale, and 
appearance it still bears the strong impress of the care- 
fully-selected officers of the United States Army who 
organized, trained, and developed it. 

This force, excellent as it is, is designed to meet the 
police needs of the situation in time of peace. There is no defense in 

*^ . . .,. . case of war. 

no adequate local organization of the Philippine people 
for defense of the islands against aggression. The Ameri- tion^u?°s^trS 
can Government should at once take the necessary steps ^* ^' °^^^^^>^- 
to organize, train, and equip such a force. 

There has been some lowering of standards, due lo^e^red^ through 
principally to the sudden loss of the bulk of the experi- IXeri'^^^'^^^'' 
enced American officers, who left the service to enter 
the World War, and to the effects of the low rate of pay ^®^s^°^- 
which resulted in many leaving the service; also to the 
demoralizing, and at times intimidating, effect of political 
influence, the detached nature of the duties, infrequent* 
inspections, and frequent change of officers. But on the 
whole this force is a very satisfactory one and is entitled 
to great credit for its morale, efficiency, and orderly and 
effective performance of duty. 

o 1 1 i« 1 -L ^ rr' Constabulary 

home years ago a school lor constabulary omcers was school. 
organized and has been in operation with excellent results. 
No men are now appointed to the constabulary who are 
not graduates of this school, where they have undergone 
a careful preparation and training. The quality of the 
graduates shows what can be accomplished when oppor- 
tunity for careful training is offered. 



24 REPORT SPECIAL MISSION ON INVESTIGATION 

• 

PubUc order. Public Order is excellent throughout the islands, with 
sL^es^ ^^^^^^' the exception of minor disturbances in the Moro regions, 
due principally to energetic and sometimes overzealous 
efforts to hasten the placing of Moro children, especially 
girls, in the public schools, and to the too sudden imposi- 
tion upon the disarmed Mohammedans of what amounts 
Mor^^^pres^nta- ^o an absolutc coutrol by Christian Filipinos. It is also 
emments.^'^^"^' ^^^ ^ P^^^ to failure to give adequate representation in 
local governments to Moros. 

ADMINISTRATION OF JUSTICE. 

Various courts Justice is administered in the Philippines by a supreme 
JUS ice. court, numerous courts of first instance, justice of the 

peace courts, and municipal courts. 
Filipino atti- The Supreme court has the respect and confidence of 

tude toward ... . 

courts. the Philippine people. The other tribunals do not enjoy 

an equal degree of confidence. In the lower tribunals, 
generally speaking, the administration of justice is 
denc?in^ fower ^i^satisf actory, slow, and halting, and there is a wide- 
courts, spread feeling among the people that political, family^ 
and other influences have undue weight in determining 
issues. 
Courts under DurinsT the existence of the Philippine Commission, a 

Commission. ^ ^^ _ ' 

most seri'ous effort was made to secure the best available 
men for the bench, without regard to party affiliation, 
and the men appointed at that time as a rule enjoyed 
public confidence. In later years, the same care has 
not been exercised. 
At present. There are pending in the courts of the islands to-day, 

Number of in rouud numbers, approximately 50,000 cases, includinsr 

cases pending. ^ x-x- . . . . 

some 8,000 probate and guardianship cases. Conditions 
are growing steadily worse, and with the present per- 
sonnel and methods the dockets will never be cleared. 
. The condition of the courts of first instance is generally 

cases"'^^^^^ i" deplorable. The number of cases filed has steadily in- 
shortage of crcascd from year to year. The number of judges has 
not been increased proportionately and is insufficient to 
dispose of, promptly and efficiently, the great volume of 
business that they are called upon to transact. The 
abolition of the court of land registration imposed a 
heavy additional burden upon these courts. The judges 
in too many courts do not realize the necessity of reach- 
ing early and prompt decisions and are too ready to 

cierTs'^^^"^^''^^ postpone hearings and trials. The clerks of the courts 
of first instance are too often without the necessary 



TO THE PHILIPPINE ISLANDS. 25 

experience. There is no uniform system of filing records, Lack of system. 
and in many cases it is difficult for attorneys to secure 
records promptly. 

The justice of the peace courts are the weakest point 
in the judicial establishment. Complaints against these 
courts are numerous and come from all parts of the 
archipelago. Because of the remoteness and isolation 
of many of these tribunals, the want of frequent and 
effective supervision and inspection, many abuses are 
perpetrated. 

A frequent cause of complaint is against extreme action 
taken under the provisions of Act 2098, which enables of Act S.^''*^ 
employers of labor to prosecute their laborers for breach 
of contract, and in many cases to hold them against their 
will, resulting in a kind of legalized peonage. The Peonage. 
laborers are kept in debt through the advance of money 
and supplies, and in return for these advances agree to 
work for definite periods of time and under certain con- 
ditions. Under the provisions of this act, should they 
leave before completion of contract they can be arrested 
and tried for violation of contract and for obtaining 
money or supplies under false pretenses. During the 
fiscal year 1918 there was a total of 3,266 cases of this 
nature, of which 1,456 were convicted. 

Another conmaon cause of complaint is the initiation confinement in 

/. T li'-j^i 1^ 1 J? i , remote places. 

oi proceedings resultmg m the arrest and connnement at 
remote places of people who are unable to give bond. 
This procedure results often in holding of men in con- 
finement for months before the cases are acted upon by 
the judge of the court of first instance. 

The present condition results first, and above all, from causes. 
the lack of proper inspection and prompt, corrective 
action where inefficiency and negligence have been shown, 
from an insufficient number of judges, insufficient pay 
and no provisions for retirement, and in some instances 
to lack of careful selection. 

Investigation also indicates very clearly that more 
care should be exercised in the selection of the fiscals, 
or prosecuting attorneys. 

The unsatisfactory condition in the administration of ,J"S"^K^"thori- 

•^ , ties can [remedy 

justice can be corrected by the insular authorities. In defects. 
doing this, it is important to build up a strong public 
opinion in support of a prompt, effective and impartial rovemlnts '^°^' 
administration of justice. Provisions should be made 
for the retirement of judges of the courts of first instance 
77622—21 i 



26 REPORT SPECIAL MISSION ON INVESTIGATION 

and the entire administration of justice must be placed 
outside the scope of political and other improper in- 
fluences. In brief, the independence and stability of the 
judiciary must be established. It lies at the foundation 
of stable government. 

LAND TITLES. 

Land titles. The land title situation in the Philippines is a serious 

• one. It should be the policy of the Government to push 

Cadastral sur- forward the cadastral survey, determine titles to land as 

vey. _ _ ... 

quickly as possible, and to facilitate in every possible 
manner the acquisition of titles by homesteaders. 

titiS^^"^*^^^^ °^ Nothing is more conducive to good government than 
having the people secure in the ownership of their land 
and possessing titles guaranteed by the Government, as 
is the practice under the Torrens system. Filipinos have 
the excellent trait of a strong, inherent desire to own 
their own land. 

m^SsSation. ^^ ^hc present unfortunate land title situation is largely 
due to an inefficient administration of the land office in 
recent years and to an increase in the number of problems 
which the Government has to handle. 
Former effi- In 1913 the iusular government had a thoroughly 
efficient and trained bureau of lands and an experienced 
and effective court of land registration. To-day the 
inefficiency of the bureau of lands is due, in part, to lack 
of experienced and trained personnel, to inefficient 
Abolition of management and lack of funds. Delay in obtaining titles 

court of land . ° it- pi pi i- 

registration. is also duc to the abolition of the court oi land registra- 
tion and to the transfer of land cases to the overloaded 
courts of first instance. This has resulted in an increase 
in the number of abuses by which the poor farmer and 
homesteader, ignorant of his rights, is forced off his land 
by his richer and unscrupulous neighbor. The situation 
tends to serious discontent and must be corrected. 
Recommenda- An adequate court of land registration should be re- 

*^^°- estabhshed. 

PRISONS. 

Prisons. The insular government maintains Bilibid Prison in 

Manila, the San Ramon Prison and Penal Colony com- 
bined near Zamboanga, the Iwahig Penal Colony near 
Puerto Princesa, on the island of Palawan; the Fort Mills 
Prison on Corregidor, and a prison at Bontok in the 
Mountain Province. The total number confined in all 
these prisons for 1920 was 5,254. 



TO THE PHILIPPIITE ISLANDS. 27 

Bilibid is the receiving station and distributing point siiiMd Prisoir. 
of all classes of criminals, except those of the Moro and 
Mountain Provinces, which are held at San Ramon and 
Bontok, respectively. Bilibid retains convicts which 
can not be worked outside and about 1,500 employed in 
industrial work. 

TREATMENT OF PRISONERS. 

Prisoners, upon arrival in any of these prisons, are Prison methods, 
physically examined, treated if found necessary, given a 
period of training in drill and exercise movements and, if 
possible, assigned to work for which preference is ex- 
pressed. The time of confinement in prisons under ^^^^^^^^ ^«n- 
guard is determined by character and length of sentence 
and expressed desire of prisoner, governed by good con-* 
duct. Incentives are provided for good conduct in addi- 
tional privileges, gratuities, by additional liberty through 
classification as ^^ trusties" or penal colonists, and by 
automatic reduction of the time of sentence by reason of 
good behavior. 

Prisoners of excellent conduct who have served one- go?d conduct ^^^ 
fifth of their sentence at Bilibid may be sent to Iwahig, 
where Rve additional days per month are allowed for 
good time credit. Also, life sentence is commuted to 30 
years in the cases of convicts who are sent to Iwahig, and 
good behavior counts so that life sentences can be served 
in about 22 years. Furthermore, at Iwahig, a convict 
by good conduct may become a settler and receive one- 
half of what he produces, the land, tools, animals, etc., 
being provided for him. 

The Iwahig Penal Colony has a reservation of o'^er ^Jj^ahig Penai 
100,000 acres on the island of Palawan. It is a partially 
self-governing community, founded originally somewhat 
upon the principle of the George Junior Republic. It 
has a population of about 1,200 colonists and has proved 
to be a most successful institution, far advanced in re- 
formatory methods and results, the number of convicts 
returned to prison after release from the colony being 
extremely small. 

PROVINCIAL AND MUNICIPAL JAILS. 

Besides the above-mentioned prisons, most of the Provincial jaiis. 
provincial and municipal jails in the islands were care- 
fully inspected. The provincial jails were generally over- 
crowded. There are little or no provisions for taking 



28 



REPORT SPECIAL MISSION ON" INVESTIGATION 



care of the sick. Marked favoritism is often shown to 
prisoners with influential friends. The food is generally 
good and sufficient. The condition of the clothing is 
fair. The prison guards are poorly trained and poorly 
disciplined. 

Municipal Jails. The municipal jails are, as a general rule, unsatis- 
factory. They are small, dark, usually poorly venti- 
lated and unsanitary. The municipal prisoners are 
poorly fed, poorly clad, and generally poorly cared for. 
In the great majority of municipal jails no proper pro- 
vision is made for female prisoners. 

Delay in trials. It was observed generally throughout the islands that 
there were a great number of prisoners awaiting trial for 
unusually long periods. . v 



Public desire 
or education. 



Growtti. 



PUBLIC EDUCATION. 

The Filipinos are deeply interested in public education. 
Their enthusiasm, their keenness to secure education for 
their children is beyond praise. The progressive de- 
velopment of the school system %a^ been phenomenal. 
Indeed, enthusiasm has at times outrun prudence, and 
expansion has taken place so rapidly that efficiency has 
not been able to keep pace. However, such mistakes as 
have been made have resulted from enthusiasm in a noble 
cause — the education of the youth of the islands. 

The following gives an idea of the ^ pfe:ogress in this 
department : 

Annual Enrollment of the puhlic schools. 



\y 





1898 


1902 


1907 


* 

1914 


1920 


Pupils 


4,504 

847 

1,914 


1200,000 

746 

6,141 


479,978 

658 

7,013 


621,030 

341 

7,234 


935,678 
316 


American teachers 


Filipino teachers 


20, 691 







School build- 
ings. 



1 Estimated. 

In 1920 the public owned 4,063 and rented 1,163 school 
buildings. 

^xpense in Xhe total expenditures for administration and instruc- 
TJniversity tion Were about $6,869,654.50 for 1920. The universitv 

statistics. . 

had, in 1920, an enrollment of 4,130 with a teaching force 
of 379 professors and assistants. The cost of operation 
was $755,926.57. 
Parents' atti- Xs before stated, the self-sacrifice of the parents has 

tude toward ' , . . ^ 

education. been great. They have willingly deprived themselves of 

many necessities in order that they might aid in the 
voluntary building of schools and properly equip their 



TO THE PHILIPPINE ISLANDS. 29 

children for school attendance. The percentage of thCpJ^p^^f^J^I^ P^ 
population in the schools is about 10 per cent, an excel- ^^^°°'^- 
lent showing for a new government (the percentage for 
the United States for 1918 was 20.13). The amount ^^xpense per 

. child. 

spent for each pupil per year is $9.50 (the United States 

annual expenditure is $36.62). The amount per capita capua^^"^^ ^^^ 

for the entire population of the Philippine Islands is 

$0.86. 

One of the most difficult problems has been to secure fijj^[ng^tg|^|j.s°^ 
efficient teachers. No class of men and women should 
be selected with more care, for they are charged not only 
with the routine education of the children, but inevitably 
have a great influence in forming their ideas of citizen- 
ship obligation, respect for the law and the authorities, 
and as these teachers do their work to-day so will the 
Philippine people of to-morrow be. Too much care can importance of 

, , -i-ji-i,' p ^ 1 efficient instruc- 

not be exercised m their selection, lor only men andtion. 
women of capacity can teach children to think straight 
and to apply their minds to the problems of life intel- 
ligently. 

The exceedingly rapid expansion of the school system ^^.^jj^^ ^^^^^j^^^^g"" 
has made it difficult to secure a sufficient number of 
well-trained teachers. The great majority of the teach- ^^^[.^^^^^^^^g; 
ers in the primary schools are products of the interme- ^°s staffs. 
diate schools and have had comparatively little experi- 
ence in teaching, so that hand in hand with the education 
of the children has gone the effort to train and build up 
a competent teaching force. 

One of the principal objects of the schools is to teach importance of 
the children to speak English, so that it may become the 
language of the people. This is of vital importance, as it 
will form a bond of union for the numerous and more or 
less distinct language groups and establish a common 
medium of communication, which will make for efficiency 
in government and tend to build up a spirit of solidarity. 
It will also result in a more widely circulating press and ^/''^-'nio^^ p"^' 
the creation of an instructed public opinion, which is 
most important. 

There is a great shortage of English-speaking teachers. ^^^^^^^ r i c a n 
Many of the Filipino teachers who are instructing in 
English are themselves far from proficient in it. The 
force of American teachers is altogether too small and 
should be increased to approximately 1,000 if instruction 
in English is to be rapidly and successfully pushed 
forward. 

77622—21 5 



30 REPORT SPECIAL MISSION ON INVESTIGATION 

co^TageAmeS- ^^ ordei to secuie this number of American teachers, 
can teachers. [^ addition to the present salary a hberal allowance will 
have to be made for transportation to and from the 
islands. And as a further measure toward better con- 
course in Eng- (jjtions for instruction in English arrangements should 

lish for native , ° ^ 

teachers recom- be made f or an intensive course in English for the native 

mended. . ° 

teachers, during the summer months. 
Higher educa- The preparation of the Filipinos to meet the profes- 

tion provided for. , ... . . 

sional and scientific requirements of their country and 
for the advancement of general culture are in part pro- 

thYphfif^^mes^^^^^^^ ^^^ ^^ ^^^ University of the Philippines, the high 
schools, and certain private schools and colleges. 

At present these institutions are not turning out a 
sufficient number of graduates to meet the needs of the 
situation. The University of the Philippines is an insti- 
tution full of promise, but is not meeting the demands 
upon it in as satisfactory a manner as could reasonably 
Further neces- be expectcd. There is an urgent need of Americans of 

sity for Amer- -^ - p i i i n 

icans. high staudmg and capacity lor the heads oi some depart- 

ments. A general reorganization is urgently necessary 
and business management must be put on a sound basis» 
Medical School. The medical school should be brought to a par with the 
best in America and the school of tropical medicine should 
Reestablish- be reestablished and placed under the direction of thor- 

ment of School of . > • i rrd • i i i» 

Tropical Medi-ougiily Competent personnel. Ihis school, a lew years 
ago, had attained the highest standing in the East. At 

otSr^cofieges de-P^^^®^^ ^^ ^^ ^^^ i^ Operation. The college of agriculture, 

sired. Veterinary college, and the college of education should 

be strengthened and enlarged, to meet the needs of the 
people. 

cation^provided^ ^ scrious effort has been made on the part of teachers 
and others to impress upon the children the dignity of 
labor, and we are glad to say that good progress has been 
made. There is a very general interest and strong devel- 
opment throughout the school system in the industrial 

traimng^"^^"'^^^^^^ agricultural training adapted to the needs of the peo- 
ple ; in the manual training for boys and domestic science 
Athletics. ^ud hygiene for girls. There is a strong interest in ath- 
letics throughout the public-school system and in the uni- 
versity. This has received the strong encouragement of 
the Philippine people. Filipmo athletes have on two 
Achievements occasions wou the championship of the Orient in the Far 
Eastern Olympiad, in competition with athletes from 
Japan and China. 



TO THE PHILIPPINE ISLANDS. 31 

THE BUREAU OF SCIENCE. 



This was probably the most important single institu- Bureau oi sci- 
tion in the Philippines, and for years it rendered vitally 
important service not only to the Philippine Government 
in its various departments but also to the world at large, 
through its scientific research work. It attained a posi- Deterioration 
tion of great eminence and credit, but on account of the 
lack of adequate support and adequate personnel it does 
not occupy the position to-day that it did from 1905 to 
1915. Reorganization and the appointment of a person- 
nel in all respects adequate is imperative. The work of worid srop'^. 
this institution is of inestimable value to the Philippines 
and to the world at large. 

HEALTH AND SANITATION. 

It can be said, without fear of successful contradiction, mSicaHaciiitie/ 
that the average Filipino is born, lives, and dies without 
medical attendance or nursing. There is a great lack of 
hospitals and dispensaries. The excellent health service Deterioration 

,., ., -11 1 1 -I • ^^ health service. 

which previously existed has become largely inert. 
Much of the personnel remains, but it has lost the zeal 
and vigor which formerly characterized it. 

Appropriations for sanitary work and medicines, etc., Lack of appro- 

. rr» • priations. 

are msumcient. 

The statistics of the Philippine health service show increase in pre- 

, - , - . , . rentable diseases. 

that there has been a steady increase m recent years m 

the number of preventable diseases, especially typhoid, 

malaria, beriberi, and tuberculosis. Before suggestions 

could be intelligently offered as to remedying this and 

other shortcomings in health administration, a detailed 

study would be necessary. It would seem, however, 

that as a basis for constructive action it is a sound 

assumption that the health activities and measures for 

medical relief which are so scattered throughout so 

many different agencies should be coordinated into one Need of coordi- 

department and that an endeavor to correct conditions ^^^**^°- 

should work toward the realization of that object. 

There is a great shortage of doctors , nurses , and properly shortage of 

, .^ i^-iPii t- t^ J medical person- 

tramed sanitary personnel. Outside oi the largest towns nci. 

hospitals are so few and far between that they are a Hospitals. 

negligible quantity. There are about 930 nurses for a Numbers of 

population of ten and one-half million. The number of tion. 

nurses should be greatly increased. They are most 

useful as sanitary inspectors and visiting nurses. Where- 

ever you find good nurses you find lowered infant mor- Effect on infant 

T ,. . ,.. mortality. 

tality and improved sanitary conditions. 



32 REPORT SPECIAL MISSION ON INVESTIGATION 

LEPERS. 

Leper colony. i>]^g Philippine Islands have the largest single leper 

colony in the world. About 5,000 lepers are assembled 

at Culion. Excellent work has been done here, and the 

efforts and results are entitled to much credit; but much 

vercrow mg. p^j^g^jj^g ^q j^g douc. The Icpcrs are too congested. 

segreg?uon. °'^ There should be a segregation of those who have become 
negative and of the children who are born free from the 
disease. At present those whose reaction is negative are 
living with those who are in the active stage of the 
disease, and children who are born clean are associating 
with their leper parents and companions. The establish- 

onySentiaL°^"^®^^ ^^ ^^ isolation colouy near the main colony is 
absolutely essential. 

ti\5^d1scov^eries^. Rcceut discovcrics render it almost certain that a large 
percentage of lepers can be cured. Although the remedy 
costs but little, funds have not been made available in 

ageTr^eated!'^^^'^^^^^^^^^^ amouuts to providc this treatment for more 
than 10 per cent of the lepers. 

new me^th*?ds In brief, it can be stated that the original work done in 

^'^^ ■ Honolulu has now received confirmation to a degree that 

fully warrants introducing this treatment on a large 
scale in the Philippines and abandoning other treatments 
which have been advocated in the past, as there is every 
reason to believe that a large percentage of patients 
would soon recover to a point where they could be paroled. 
It is obvious that the dictates of humanity demand a very 
general use of the approved treatment. Furthermore, 

vant^esof'cur^." ^^® cconomic advantage of relieving the Government 
from the care of large numbers of cases would be another 
desirable outcome. In a short time the money saved on 
patients discharged would more than provide funds for 
treating the entire number. 

INSANE. 

n^^J^^^l?-,o^^' The care of the insane is medieval. Proper accommoda- 

commoaations. ^ 

tions are entirely lacking. Steps should be taken to 
provide a proper establishment for the treatment of the 
insane. The present institution lacks practically every 
feature which should characterize a hospital for the insane, 
and possesses many which can be guaranteed to turn 
those who are balancing between sanity and insanity in 
of cases. the wroug direction. There are no provisions for the 



TO THE PHILIPPINE ISLANDS. 33 

separation of the violently insane from the incipient and 
mild cases, and conditions are, from the standpoint of 
proper treatment, exceedingly bad and should have been 
corrected long ago. 

This is a matter which will be presented to the legisla- temSld°° "'"''" 
ture at the coming session, and although funds may not 
be available for the construction of a fitting establishment, 
steps can be taken to improve greatly present conditions 
and lay the foundations for the future proper treatment. 

DEFECTIVES. 

According to accepted ratios per thousand, there are in ^^^^t^'^^s. 
the Philippines between 5,000 and 10,000 defective ^^'"^''^• 
children, deaf, dumb, or blind. So far the Government 
has provided for the care of only 65 of these defectives, provisions^for^do 
to whom it owes a particular duty. fectives. 

ECONOMIC CONDITIONS. 

We are pleased to note and record many evidences of ^g^gio^j^gnL ^ ^ ' 
progressive development in the islands, as indicated by the 
following significant figures : 

The postal savings bank was started in 1907, and ^y s^^ngsde^olils! 
1913 it had 40,000 depositors and. $1,240,000 in deposits. 
In 1920 these had reached 107,000 depositors and $3,327,- 
000 in deposits. 

The law requires that 1 per cent of the gross business ^Jg^J^^^^^^p^^fj^fch 
done in the islands be paid to the Government in the form ^^^^^ collected. 
of taxes. This business was computed to be $200,000,000 
a year in 1907, when the tax was first imposed, and had 
increased to $325,000,000 in 1913. In 1920 it had 
reached the figure of $863,000,000. For example, the ^^^Xctured^^'' 
number of cigars manufactured had increased from 
.300,000,000 to 500,000,000. The total resources of com- increase bank 
mercial banks rose from $15,000,000 in 1906 to $31,000,- '"'''"'■'''• 
000 in 1913, and are now estimated to be $215,000,000; 
this, however, includes the impaired resources of the 
Philippine National Bank without reduction for losses. 
Money orders sold increased from $8,000,000 in 1913 to ^^i^J^^^3fj^^30"«y 
$17,000,000 in 1920, and postage receipts from $380,000 
in 1913 to $780,000 in 1920. Telegraph receipts show a g^i™5„ J^^i^" 
similar increase. The gross earnings of the Philippine Growth of pwi- 

.„ . , . „ . . ippine Railway 

Railway have risen from $380,000 in 1913 to $750,000 in business. 
1920 and the Manila Railroad from $2,400,000 in 1914 MamiaR.R. 
to $5,900,000 in 1920; this latter, however, is partially to 



sion. 



34 EEPORT SPECIAL MISSION ON INVESTIGATION 

be explained by the sharp increase in the mileage and 
rates. 

All this development is very gratifying and shows how 
rapidly the Philippine people respond to improved condi- 
tions of transportation, finance, public order, and markets, 
brought about since the American occupation. The 
_^ War prosper- gj^arpest , advances have been made during the war, as 
was to be expected, as the Filipinos had few additional 
war burdens placed upon them and were able to take 
advantage of the great increase in prices, which brought 
them unexampled prosperity. 

Present depres- The country is suffering from the general world-wide 
depression at the present time ; the prices of products have 
fallen off very sharply, but even this is less acute than in 
other countries. 

It should be noted, however, that whatever mistakes 
have been made here, they have not been sufficient to 
arrest the steady rate of progress which these figures prove 
to have taken place. Attention is called to the Progress 
Barometer, which is among the exhibits. 

Comparative Your missiou has had a careful report prepared showing 

trade statistics. ... r r f & 

the gross trade of the Philippine Islands. From 1903 to 
1909 the figure was almost stationary; 1909 was the 
year in which the Payne bill was passed, creating free 
trade between the Philippine Islands and the United 
trS?^* of f^ee States. In the first three years of free trade the trade 
with all countries nearly doubled. Beginning with 1916 
the trade went sharply upward until in 1920 it reached 
the remarkable total of $300,000,000. We have tried to 
No figures of p-et the figures of tonnage in order to analyze this growth 

tonnage avail- p ^ ^ . . 

^^^^- in trade and see how much comes from increase in volume 

and how much is due to increase in price, but have not^ 
been able to get these figures. 
tra^Twithunited ^^ analysis of the trade shows that a curve indicating 
states. exports and imports from the United States follows 

almost the same lines as does that of total trade. Roughly 
speaking, two-thirds of the business of the country, or 
$200,000,000, is trade with the United States, and one- 
third with all other countries. The proportion of gross 
Increase with business douc-with the United States has been steadily 

United States. , "^ 

mcreasing. As the trade with the United States pays no 

customs duties and the bulk of the increase has been in 

Decline of cus- that class of trade, the result is that the total revenues of 

tortis revenue. ' 

customs has shown a tendency to fall off, while the cost 
of collection shows a steady increase. 



TO THE PHILIPPINE ISLANDS. 35 

^ In case free trade were to be taken from the Philippine trS^^aboiished^^ 
Islands, it is probable that the closing of the rich markets 
of the United States to the products of the Philippine 
Islands would be very sharply felt. While the Philippine 
Government would receive customs duties on an impor- 
tant part of their imports that now come in free of duty, 
it is believed that the first effect would be a very serious 
blow to trade. For example, in 1920 nearly $40,000,000 
of sugar was exported to the United States, the duty on Export of sugar 
which would have been 6 or 8 per cent of its value. It is 
problematical how well Philippine sugar could have stood 
the handicap of 8 per cent added to the high cost of freight 
from the Philippines to the United States. 

The value of cigars exported to the United States was cigars. 
$10,500,000; the duty on these at the present rate would 
amount to about $30,000,000, which would practically 
have closed the markets of the United vStates to these 
cigars. There would have been a similar closing of the 
United States markets to leaf tobacco. The collector of 
customs estimates that the trade Avhich has grown. up in 
Philippine embroidery now reaches $7,500,000 a year and broidery/ ^^ ^^' 
would have to pay a duty of $4,500,000. As there is no 
other market for this product, he believes the industry 
would be practically ruined.^ 

In the main, it is believed that the loss in internal 
revenue, were the stimulus of free trade to business re- 
moved, would be greater than would be the increased 
collections of customs duties. In this connection it is 
interesting to note that the increase in internal revenue 
started when free trade was given and practically offset 
the drop in customs receipts at the time. 

Further analysis of the customs shows the principal Export figures, 
articles exported, measured in value, to have been:^ 
Sugar, $49,619,260; hemp, in which the Philippine Islands 
have a virtual monopoly, $35,862,000; coconut oil, 
$23,268,886.50; tobacco, $19,927,391 ; embroideries, 
$7,811,783.50; and copra, $3,716,870.50. 

FINANCES. 

In 1905 the Philippine Government was put on a^j^^^jj'l^jfpj^'ff/,^ 
thorough business basis. All services rendered by onCj^jj^^^"^''""^'^"*' 
branch of the Government to others were paid for, and 

1 See among exhibits indorsement", dated Sept. 9, 1921, of the insular collector of 
customs. 

2 These figures are all for 1920 and are taken from the report of the insular collector of 
customs. 



36 REPORT SPECIAL MISSION OIT INVESTIGATIOlvr 

the books were so kept that the appropriations did not 

inchide any interbureau or intergovernmental payments. 

Change in law. The law has since been changed, so that the present 

cost of government inchides items of receipts for services 

sometimes from other branches of the Government, which 

makes analysis difhcult and exact comparison impossible. 

keeplng!^^ ^^^^ The books are so kept that these amounts can not be 

ascertained without an analysis of governmental accounts 

involving prohibitive expense. So that the gross figures 

intergovern- of receipts and expense are padded on both sides by inter- 

mental charges. ,11 i-i • ,i i ^ • , 

governmental charges, which are neither real receipts or 
expenditures, as they are pa3^ments by the Government 
to itself. The accounts should be so kept that these 
fictitious entries would be eliminated, in order to enable 
the officers of the Government to get a true picture of 
government costs. 

Certain figures, however, stand out so boldly that they 
can not be questioned. The rate of taxation has been 

increasein tax- sharply advanced. The insular gross revenues from 
cent.' taxation in 1913, before the Filipinos were given virtual 

control of their Government, were $12,500,000, as opposed 
to $28,000,000 in 1920, an increase of 124 per cent. Gov- 
ernment expenditures show a still greater proportion of 

Excessive ex- arowth. This increase in the o-eneral cost of government 

penditures. ^ . ^ ^ _ ^ 

has not been accompanied by a proportionate increase in 
eflficiency; on the contrary, as has been noted elsewhere, 
there has been a general falling off in efficiency. 
•*''',^n^o^,Ron ^^P" The per capita revenue from taxation has risen from 

ita 1913-1920 com- i: " 

pared^j^ith other $1.32 in 1913 to $2.50 in 1920. This compares with the 
per capita taxation of $23.78 in Great Britain (1914-15), 
$9.92 in the United States (1914-15), $5.57 in Japan 
(1915-16), $17.33 in the Argentine Republic (1915), and 
$7.79 in Brazil (1915),° from which it will be seen that the 
Filipino bears a smaller burden of taxation than the 
natives in any of the above cited countries. One reason 
the burden of taxation is so light in the Philippine Islands 

pense borne by is bccausc the United States has borne all costs of military 
and naval establishments necessary for the defense of the 
islands, and other expenses incident to the maintenance 
of sovereignty, including international, diplomatic, and 
consular representation. 

a These figures are taken from World Almanac, 1917, and are much heavier since 
the Great AVar. 



TO THE PHILIPPINE ISLANDS. 37 

Of the total revenues of $40,500,000,^ $28,000,000 is enue*^^^' ""^ '■'^' 
from taxation and $10,500,000 from operating income 
and commercial and industrial units; this does not include 
earnings of the railroad, which the government owns 
through ownership of the stock. 

An analysis of revenue derived from taxation shows the ente ^^^^^^ °^ '^^^' 
receipts from internal revenues to be $18,500,000, or two- 
thirds of the total. This internal -revenue collection is 
nearly four times as heavy as the collections of 1913. 

The bonded debt of the Philippine Islands in 1920 was Bonded debt. 
$22,000,000, for the redemption of which is laid aside 
nearly $5,000,000, sinking fund, so the net liability is 
something less than $17,500,000. A comparison with the ca.pi°t?witrXJ 
debt of other countries demonstrates that the Philippine ^°'^*'^®^- 
Islands has . a smaller bonded debt than most countries, 
the per capita being $1.81, compared with $25 in Cuba, 
$237.07 in the United States, $853 in England, and $1,159 
in France. The Dutch East Indies with $1.92, is the 
nearest, and China next with a little less than double that 
of the Philippine Islands.'' It will be seen that the recent ^^"^oT^p^iif^" 
act of Congress increasing the authority of the Philippine p^"^® islands. 
Islands to borrow was highly conservative and could be 
safely further increased without jeopardizing the financial 
stability of the government. Bonds and notes of the 
Philippine Islands have been made exempt from federal ^^^q^I'^^^^ ^^' 
taxation and are received on deposit as currency reserve. 
Although not directly guaranteed, it is understood that 
the credit of the United States Government is behind,. i^^P^iedobiiga- 

tions of tlie 

them; this accounts for the high market value of these United states. 
bonds. 

In addition to the insular revenues, there are the pro- j^J^^ip^f ^^evi 
vincial and municipal revenues. These are expended by^^®^" 
the provinces and municipalities by vote of their own 
local authority. An examination of their accounts shows increase in past 
a similar expansion, the receipts and expenditures having 
increased about 100 per cent in the past eight years. 

The government expense and cost of materials have increase in ex- 
shown a tendency to a sharp increase. And it is to be^^"^^' 
noted that a number of new bureaus and offices have^^New bureaus 
been created. 

3 The census shows "income" of $49,000,000; this, however, is incorrect because analy- 
sis proves that it includes moneys derived from the sale of bonds. 
< Figures furnished by the insular auditor. 



w 



38 REPORT SPECIAL MISSION ON INVESTIGATION 

THE PHILIPPINE NATIONAL BANK. 

p^comguisoryde- xhe stoiy of the Philippine National Bank is one of the 
§a\ governments" ^^^^ unfortunate and darkest pages in PhiUppine history. 
This bank was started in 1916, and a law was passed ^ 
compelling all provincial and municipal governments to 
deposit all their funds in it; and at the same time arrange- 
ments were made to transfer from other banks all govern- 
ment funds there deposited, except trust funds, which 
were held on deposit in the United States ; later the bank 
was put into a position to get control of these moneys and 
reserve funds. The sum of $41,500,000, held for the con- 
version of currency, was transferred to the Philippine 
Islands, the bank making a large profit in exchange in 

Questionable doing SO. Much of it was then loaned out to speculative 
concerns under circumstances which have led to grave 
doubt as to the good faith of the transactions. 

Presidents. A man presumed to be experienced in banking was 

brought from the United States and took the first presi- 

inexperienced. dency, which he held a short time. An American inex- 
perienced in banking was then put in charge, and upon 
his death a Filipino, also without banking experience. 

Losses. became president. The result of all this has been, a series 

of banking losses, estimated by the insular auditor to 
reach the severe total of $22,500,000. A partner of 

Report of ex-Mcssrs. Haskius & Sells, certified public accountants of 
per accoun an s. ^^^ York, after a careful examination of the bank, makes 
the following comment: 

Our examination thus far reveals the fact that the bank has been 
operated during almost the entire period of its existence prior to the 
appointment of Mr. Wilson as manager in violation of every principle 
which prudence, intelligence, or eA'en honesty, dictate. 

Charges pre- As a result of these findings, char2:es have been filed 

ferred, . . o ; o ^ 

against Gen. Concepcion, a former president of the bank. 
The Government became alarmed at the seriousness of 
ing man^rou^t ^^^ situation and secured the services of a.n experienced 
g{a*tS^/^"*^®*^ banking man from the United States, under whose con- 
servative guidance the affairs of the bank are in a fair 
way to be put on a sound footing. But a large part of 
tion°of amounts ^^^^ asscts of the bank have been loaned to concerns which 
probable. ^^j]]^ ^^ unable to repay for many years — very largely in 

sugar centrals and coconut-oil factories. These loans 
were made in excessive amounts during the period of 

» See section 19 of Act No. 2612 of the Philippine Legislature. 



TO THE PHILIPPIN^E ISLANDS. 39 

boom prices, and minimum precaution in regard to secu- ^ith'^ madequato 

rity was taken, with the result that the bank has allowed security. 

its reserves to run down much lower than required by law, 

is unable to meet its current obligations, has had to ask 

other banks not to press for the redemption of its notes, caii on other 

and has further had to ask time for the payment of its 

obligations to many banks in Shanghai representing many 

countries, a list of which is among the exhibits, to whom 

it owes large sums of money as a result of losses incurred Losses from 

1 , . . 1 . .. speculation in ex^ 

in speculation m exchange transactions. change. 

Among the exhibits will be found a copy of the agree- 
ment entered into by the insular auditor and these banks 
for the settlement of these claims. 

The bank also established branches and agencies Mismanage- 

,1 1 i Ji -r»i •!•• Ti 1 • 1 ri'i ment of branches. 

throughout the rhilippme islands, m charge oi which 
they placed untrained Filipinos, and without exception 
these branches have been mismanaged. Of the four 
branches in which examinations have been completed 
criminal charges have been preferred against the mana- Ensuing crimi- 

» 1 nal charges. 

gers 01 each one. 

These losses have seriously involved the Philippine Government's 
Government, and the fact that it has not been able to ^'^ ^ i°^p*^'"® • 
meet its obligations has seriously impaired its credit. 
We have been informed by representatives of banks in 
North Borneo and Japan that they have received instruc- 
tions not to honor the notes or drafts of the Philippine noXonor^ed!^*"^ 
National Bank. 

The currency resources have been depleted, the silver currency and 

- , , -^ 1111 ledemption fund. 

on deposit to redeem the currency has been pledged and 
used for other purposes. The fund for the maintenance 
of the parity of gold and silver is involved in these losses, 
with the result that instead of a metallic and cash basis 
for the currency, its principal support now is the pledge 
of the Philippine Government and the confidence on the 
part of tile public that the United States will not permit 
these things to happen again. The currency is now prac- fja?^^'"®"^^ ^^^^ 
•fcically a fiat currency. 

In view of good earnings, moderate expenses, inherent of credit. 
wealth, a small public debt, and backed by the credit of 
the United States, the problem of rehabilitating the credit 
of the Philippine Islands should be an easy one. The 
lesson has been a bitter one for the Filipinos and the Appreciation of 
gravity of the mistake is generally appreciated. pinos. 

One of the functions of the National Bank was to manage ^^'^^^^^^s^- 



"to' 



government exchange. Having transferred all the funds 



40 REPORT SPECIAL MISSION ON INVESTIGATION 

usually available for exchange to Manila, and then loaned 
the money in such a way that it could not be recovered, 
the Government had to discontinue selling exchange. 
The rates ran up as high as 15 per cent, which was equiv- 
change! ^^ ''^' alcnt to a depreciation of the Philippine currency to 
predated?^ ^^'almost that amouut, which has resulted in great hard- 
ship to the inhabitants of the Philippine Islands, espe- 
cially those engaged in business. 

PUBLIC WORKS. 

In the matter of public works, your mission has to 
report both favorably and unfavorably. 
riauons ^^^^^ '^^^ Government and people of the islands realize the 
value and necessity of public works, and large appro- 
priations from current revenues have been made annually 
for such objects as the construction of roads, bridges ; 
irrigation systems, schoolhouses, markets, port works, 
and artesian wells, among others. We find, however, 
increaseincost. g^j2 uuduc increase in the cost of public works, due in 
many instances to construction by administration in- 
Loss by meth- stead of by contract; this has necessitated the purchase 
of equipment ordinarily furnished by the contractors. 
in^ork.^^^^^^^Th^^^ ^^^ ^^^^ been a deterioration in the quality of 
vision^ ^^ ^^^^^' ^^® work performed in this service. We find also a lack 

of competent supervision. 
done!°^ ^^^^ ^^ ^^^ other hand, there has been a great deal of 
^^capabie direc- excellent work done. The director, a Filipino, is a man 
of unusual capacity and foresight, and he impressed the 
members of the mission most favorably. 

An important proportion of all revenues of the Gov- 

ii/wo?ks*°^^^^'^^^^^^^ ^^^ allocated to public works. And in the 

^^increase desir- Qpjj^JQj^ Qf ^j^jg mission this proportion should be in- 
creased. 

gatioT^^^^^^"^ -^^ ^^^ ^^^^ three years there has been notable progress 

Expenditures. [^ construction of irrigation systems. Sixteert projects 

have been undertaken, involving an expenditure of 

op^enr "^^^^^"$4,640, 158. Many more projects are under considera-i 
tion and are awaiting the availability of funds. The 
completion of these projects is of the utmost importance 
and it is an encouraging sign of progress that they have 
advanced as far as they have. 
Road mileage. There are now 2,920 miles of roads rated as first class 
Bridges. jj^ ^]^q islands and 7,500 permanent bridges and culverts. 

^^Lowered stand- The standard, however, of first class roads has been 
lowered and we found many roads rated as first class 



TO THE PHILIPPIITE ISLANDS. 41 

which are not so. There was an earnest effort made by 
the Government to hurry through deferred repairs in 
order to prepare the roads for inspection. 

During the earher periods a system of road construe- construction 

*^ . ^ 111 ^"^^ maintenance 

tion and mamtenance was adopted and consistently systematized in 

-^ -^ earlier periods. 

followed. All structures on nrst-class roads were re^ 
inforced concrete and a standard system of road con- 
struction adopted suited to the traffic. Although the 
work progressed slowly, it was thoroughly well done, 
adequate provision being made for constant mainte- 
nance by a force of laborers. The result was that the Favorable cok- 

1 . iii'Ti p p , • parison with 

road service reached a high degree oi periection, cam- other countries. 
paring favorably with the roads of any other country 
and much better than most roads in America. The 
terrific force of the torrential rainfall in the islands made 
these precautions necessary. 

We have to record that this system has not been con- Deterioration. 
sistently maintained; the roads are falling into disrepah, 
some are impassable and the system of maintenance is 
carried on spasmodic^ly. In certain districts money 
has been spent for new roads instead of keeping up the Recent c o n- 
old ones, which is unwise. We regret to say that a 
tendency has crept in to revert to the old practice of 
building bridges and other structures of wood, and a 
uniform policy of permanent construction has not been 
maintained. This practice, in the long run, is poor 
economy. 

Heavy trucks have been purchased for carrying pas- Traffic in reia- 

,„., , , 11 tion to roads. 

sengers and freight, and regular routes have been estab- 
lished on the highways. These trucks, in some cases, 
are much heavier than the roads were designed to carry, 
and much of the deterioration noted is attributable to 
this fact. The maintenance service should be restored 
to old standards and the weight of the loads regulated, 
and standard sections strengthened to enable the use of 
heavier vehicles. 

The roads are, at first sight, good at the present time, 
but a great proportion of the wearing surface has been 
worn off without replacement. 

In the Mountain Province and non-Christian provinces Lack of organi- 
we find that the service of maintaining roads and trails fJ^^^soafe^°^^rov! 
has been neglected, but it is believed that a better or- 
ganization can remedy these defects without the neces- 
sity of additional revenues. 



mces. 



42 EEPORT SPECIAL MISSION 0?T INVESTIGATIOl!^ 

GOVERNMENT IN BUSINESS. 

bu^irS"^^"^ ^^^ '^^^ Government has entered into certain lines of busi- 
ness usually left to private initiative. Among these can 
be cited the national bank with disastrous results, the 
purchase of the Manila Railroad Co., now operated at a 
loss, also the National Development and National Coal 
Co's., etc. At the request of the mission a thorough ex- 
amination of the Manila Railroad Co. was made by com- 
petent army engineers whose report is among the ex- 
hibits. In our judgment the Government should as far 
as possible get out of and keep out of business. ) 

ELECTIONS. 

Enough elections have now been held to base an 
opinion upon results and to note the reaction of the 
Philippine people in the exercise of this important and 
fundamental function of a representative government. 

In June, 1919, the first general elections were held 
under the enlarged suffrage granted by the act of August 

frage™^^ ^"'29, 1916. The suffrage is still confined to men and to 
those who can read and write, who hold a certain amount 
of property or pay a certain tax, or to those who held 
offices under the Spanish regime. 

^^ encrai inter- Interest in the elections was widespread and election 
day passed without any serious disturbance. There was 

hymSoTitY^^^^ ^ general, quiet acceptance by the minority of the results 
of the popular vote, although the executive bureau was 
deluged with complaints. The courts, since that time, 

elation ctses^"*^^"^® been loaded with fraudulent election cases, the legal 
Number. actiou on which has been so slow that there are still 350 
cases pending in the courts, and many terms of office will 
be served out by people who were either fraudulently 
elected or, in some cases, appointed by executive order 
to the vacancies, even though their claims to the office 
had been pronounced by the courts as fraudulent. These 
were caused not only by the local conditions, to be ex- 
Defects in law. plained, but by an election law which is undoubtedly 
defective in providing sufficient safeguards for the 
ballot and which should be thoroughly revised. 
Illiterate voters Under the present election law officers known as '^in- 

not safeguarded. f , 

spectors of election'' are required to prepare the ballot 

for illiterate voters. This is a fruitful sorurce of frauds. 

Controlled by jfie clcction machinery is practicallv in the hands of the 

domiuant part}'. . 

dominant parties and the inspectors of election are too 
often their tools. 



TO THE PHILIPPINE ISLANDS. 43 

It is surprising that the elections have been conducted 
as well as they have been, in view of the fact tliat out- 
mde of the larger cities and principal towns the organiza- 
tion of society is very primitive anrl the people generally ^jJ^^j^Y^^^^^"^^ 
<are unaware of their civil rights. 

Such social organization as exists is of a patriarchal f^^^^^Jg^^^J^^^^^^'^ 
form, characterized by a strong clan feeling and centuries 
of leadership by a few influential individuals known as 
^'caciques." The subservience of the people to these "<^aciques." 
leaders has not 3^et been supplanted by new ideals that 
come with modern education or by a confirmed sense of , 

duty to the State. Whenever representatives of two 
powerful family groups oppose one another at elections g^^'|"^'^^' ^^'^"■ 
there is sure to be a bitter contest and an unwillingness 
on the part of the minority to accept the situation. 

During the visit of the mission through the provinces ^^.^^^J *^ ^ ? ® ^ ^^ 
the charges and countercharges of fraudulent practices 
have been widespread and intense. On the whole, this 
interest is indicative of a certain development of public 
opinion which will, in the end, right the wrongs. 

As a. rule, there is little evidence of a party system and veSfs^prindpies^ 
program, and the elections are fought out upon personali- 
ties rather than on principles. 

The party in power is so intrenched that under the jj^JJJJJJ,^Jj i^^^^'^'" 
present election law it w^ould be very difficult for the 
people to dislodge it if they wanted to change. 

LEGISLATION. 

Legislation in which Filipinos have paiticipated may 
'be fairly divided into three periods: * 

First, 1907 to 1913. Under the strong, conservative jg^g^l^jP^^"^^^^ 
influence of the commission with American majority, the -Americans. 
legislation passed was constructive and good, with 
marked emphasis placed upon the improvement of edu- 
cation and construction of permanent improvements. *• 

Second, 1913 to 1916. The restraining influence was ^^^f^^g^j^ J'^^^^^^^^ 
withdrawn with the appearance of a Filipino majorityjo'^i^y- 
on the commission. Good, constructive legislation was 
passed, but there were marked tendencies to inject poli- I'oiitics. 
tics into administration and to interfere with administra- 
tive efficiency. Injudicious economy by salary cutting 
and discouragement of government personnel became 
marked. The tendency toward Government interference ' 
in business and radical government paternalism began. 



44 REPORT SPECIAL MISSION ON INVESTIGATION 

war? ^independ- ^^^ legislation also showed a conscious effort to encour- 
®"^^' age Filipino nationality and independence. ° 

incmfe in lidt .Third, 1916 to 1921. With an elected House and 
caiism. Senate, the legislation in this period became increasingly 

radical in its paternalism and government interference 
with business. Some constructive legislation was passed, 
but the general trend was toward injection of politics into 
administration and encroachment of the legislative on the 
executive. Legislation affecting finance, banking, and 
currency has been radical and unwise. 
FiUp?nS^^^°ft<4s^- Another tendency in recent legislation has been the 
lated. deliberate effort to take away from the American officers 

of the Government supervision of the different branches 
of the Government and put it into the departments con- 
cnLx^nlt^e's trolled by Filipinos. Act 2666 provides that the secre- 
e|ns°^* ^^^^^' taries of all departments must be Filipinos. This is dis- 
criminator}^ legislation against Americans. The so- 
called Jones bill provides that the vice governor and 
secretary of public instruction must be an American, and 
it further provides that the health duties should be under 
Evasion of this officer. The Philippine Le2:islature has endeavored 

Jones bill. 

to evade this by transferring the management of all 
Government hospitals to the department of the interior 
and by creating and placing in the same department a 
board of pharmaceutical officers, a board of optical exam- 
iners, etc. 

isiaSn hurried^* ^hc tendency which is found in all legislatures of pass- 
ing the bulk of the legislation in the last two days of the 
session is noted. By this means, much important legis- 

carrSicybiiis^^^ lotion is passed with a rush. The forms of budget and 
currency appropriation bills are good. 

8lt is to be noted that franchises granted by the Government during this period contain 
the following clause: 

"The concession of the privilege mentioned in the preceding section shall not take 
effect unless the grantee shall accept in writing and make part of this concession the 
following condition, to wit, 'That the grantee state in writing that it is informed of 
the message of the President of the United States addressed to the Filipino people and 
communicated to said people by the Governor General of the Pliilippine Islands on 
the sixth day of October, 1913, and of the reply message of the Philippine Assembly 
made in the name of the Filipino people and approved and sent on October 16, 1913; 
that said grantee binds itself not to engage in or aid, by means of contributions in cash 
or otherwise, any propaganda directed against the policy of the Government of the 
United States outlined in such message of the President and the aspirations of the 
Filipino people set forth in said reply message of the Philippine Assembly, whether 
* under the pretext of vested interests or under any other pretext, and that said grantee 

shall further bind itself to exact a similar engagement from its administrators, agents, 
successors, and assigns.' " 



TO THE PHILIPPINE ISLANDS. 45 

GENERAL CONCLUSIONS. 

We find the people happy, peaceful, and in ]bhe main 
prosperous, and keenly appreciative of the benefits of 
American rule. 

We find everywhere among the Christian Filipinos the 
desire for independence, generally under the protection 
of the United States. The non-Christians and Americans 
are for contiauance of American control. 

We find a general failure to appreciate the fact that 
independence under the protection of another nation is not 
true independence. 

We find that the Government is not reasonably free 
from those underlying causes which result in the destruc- 
tion of government. 

We find that a reasonable proportion of officials and 
employees are men of good character and ability, and 
reasonably faithful to the trust imposed upon them; but 
that the efficiency of the public services has fallen off, and 
that they are now relatively inefficient, due to lack of 
inspection and to the too rapid transfer of control to 
officials who have not had the necessary time for proper 
training. 

We find that many Filipinos have shown marked 
capacity for government service and that the young 
generation is full of promise; that the civil service laws 
have in the main been honestly administered, but there 
is a marked deterioration due to the injection of politics. 

We find there is a disquieting lack of confidence in the 
administration of justice, to an extent which constitutes 
a menace to the stability of the government. 

We find that the people are not organized economically 
nor from the standpoint of national defense to maintain 
an independent government. 

We find that the legislative chambers are conducted 
with dignity and decorum and are composed of repre- 
sentative men. 

We feel that the lack of success in certain departments 
should not be considered as proof of essential incapacity 
on the part of Filipinos, but rather as indicating lack of 
experience and opportunity, and especially lack of 
inspection. 

We find that questions in regard to confirmation of 
appointments might at any time arise which would make 
a deadlock between the Governor General and the 
Philippine Senate. 



46 KEPOKT SPECIAL MISSION OK INVESTIGATION 

We feel that with all their many excellent qualities, the 
experience of the past eight years, during which they have 
had practical autonomy, has not been such as to justify 
the people of the United States relinquishing supervision 
of the Government of the Philippine Islands, withdrawing 
their army and navy, and leaving the islands a prey to 
any powerful nation coveting their rich soil and potential 
commercial advantages. 

In conclusion we are convinced that it would be a 
betrayal of the Philippine people, a misfortune to the 
American people, a distinct step backward in the path of 
progress, and a discreditable neglect of our national duty 
were we to withdraw from the islands and terminate our 
relationship there without giving the Filipinos the best 
chance possible to have an orderly and permanently 
stable government. 

RECOMMENDATIONS. 

1. We recommend that the present general status of 
• the Philippine Islands continue until the people have had 

time to absorb and thoroughly master the powers already 
in their hands. 

2. We recommend that the responsible representative 
of the United States, the Governor General, have au- 
thority commensurate with the responsibilities of his 
position. In case of failure to secure the necessary cor- 
rective action by the Philippine Legislature, we recom- 
mend that Congress declare null and void legislation 
which has been enacted diminishing, limiting, or dividing 
the authority granted the Governor General under Act 
No. 240 of the Sixty-fourth Congress, known as the Jones 
bill. 

3. We recommend that in case of a deadlock between 
the Governor General and the Philippine Senate in the 
confirmation of appointments that the President of the 
United States be authorized to make and render the final 
decision. 

4. We recommend that under no circumstances should 

the American Government permit to be established in the 

Philippine Islands a situation which would leave the 

United States in a position of responsibility without 

authority. 

Leonard Wood, Cliairman. 

W. Cameron Forbes. 

October 8, 1921, 



INDEX. 

Page, 

Achievements in athletics 30 

Act 2666 discriminates against Americans 44 

Act 2098, unpopularity of 25 

Administration : 

Efficiency of, in 1913 22 

Inefficiency of 26 

Top-heavy .• 17 

Administrative investigations made 11 

Advantage, economic, of leprosy cure 32 

Agricultural training 30 

American attitude in Philippines 21 

American control 20 

American control established 14 

American institutions, influence for good of 22 

American occupation: 

Periods of -. 15 

Progress since 20 

American policy in Philippines 15 

American rule, general appreciation of 45 

American teachers: 

Means to encourage 30 

Shortage of 29 

Americans: 

Discharged 16 

Effect of, commercially and as organizers 22 

First period of legislation under 43 

Friendliness toward 20 

Further necessity for 30 

Americans and foreigners still control financial institutions ^. . . 19 

Americans and Non-Christians in favor of United States control 45 

Analysis of revenue .' 37 

Appointments, in case of deadlock over confirmation of by Senate 45 

^Vppreciation of mistake by Filipinos 39 

Appropriations: 

Lack of 31 

Large for public works 40 

Arrival of mission 10 

Athletics, achievements in 30 

Attitude: 

Filipino, towards court .' 24 

Parents, toward education 28 

Authorities, insular, can remedy defects 25 

Authority, usurpation of Governor General's 23 

47 



48 INDEX. 

Bank: Page. 

Large loans with inadequate security for 39^ 

Losses 38 

Managers, charges preferred against 38 

Mismanagement of branches of 39 

Notes of, not honored 39 

Officials, ensuing criminal charges against 39 

Presidents inexperienced 38 

Resources, increase 33 

Banking man, trained, brought from United States 38 

Bank's accounts, slow liquidation of, probable. 38 

Banks, call on other 39 

Bilibid Prison 27 

Bonded debt 37 

Per capita, comparison of, with other countries 37 

Bonds and notes. Government, tax exempt 37 

Borneo, Philippines dominated by 13 

Borrowing capacity of Philippine Government 37 

Bridges: 

Construction and maintenance systematized in earlier periods 41 

Deterioration of roads and 41 

Recent construction of roads and 41 

British occupation of Manila 13 

Budget and currency bills : 44 

Buildings, school 28 

Bureaucracy 22 

Bureau of science 31 

Deterioration of 31 

Bureaus created, new 37 

Business: 

Government in 42 

Gross, increase of, on which taxes collected 33 

Business basis of Philippine Government in 1905 3& 

' ' Caciques " 43 

Cadastral survey 26 

Capable director of public works 40 

Capacity, borrowing, of Philippine Government 37 

Cases: 

Increase in court .« ' 24 

Pending, number of court 24 

Caucasians, first 12 

Chambers, legislative, decorous 45 

Change in law 36- 

Change in policy not urged 20 

Characteristics, racial 17 

Charges : 

Against bank officials, ensuing criminal 39 

Intergovernmental . . j 36 

Of election frauds 43 

Preferred against bank managers 38 

Child, expense of education per 29 

Children, number of, enrolled 28 

Chinese, massacres of 13 



INDEX. 49 

Page. 

Christian Filipinos, independence desired by 4^ 

Cigars '. 35 

Increase, manufactured 33 

Circulation of papers small 18 

Cities and towns visited, 499 11 

Civil government established 15 

Civil rights not understood 43 

Civil Service: 

Injection. of politics 43, 45 

Politics in 23 

Clerks, inexperienced 24 

Clubs, women's 19 

Colleges, enlarging of other, desirable 30 

Colon}^ : 

Iwahig penal 27 

Leper 32 

Isolation colony essential at 32 

Necessity of segregation at : 32 

Overcrowding of 1 32 

Commerce : 

Increase in 34 

Japanese, prior to 1600 13 

Commission sole legislative body 15 

Comparison of per capita taxes with other countries 36 

Compulsory deposits by provinces and municipalities 38 

Condition of justice menace to stability 45 

Conduct, rewards for good 27 

Conference in Manila with all classes and nationalities 11 

Confinement: 

In remote places 25 

Term of 27 

Conquest by United States, 1898 14 

Constabulary school 23 

Constabulary, standards lowered through loss of American officers 23 

Constabulary and public order 23 

Construction and maintenance of roads and bridges 41 

Construction, recent, of roads and bridges 41 

Control, American 14 

Established 14 

Control, complete Spanish 13 

Control of Government by Filipinos 16 

Coordination, need of, in health service 31 

Cordial reception 12 

Correspondents, press 10 

Cost of public works, increase in 40 

Course in English for native teachers recommended 30 

Court of land registration, abolition 26 

Courts: 

Filipino attitude toward 24 

Lower, lack of confidence in 24 

Courts of justice, various 24 

Credit impaired, Government 39 

Credit, of Philippine Islands, rehabilitation of 39 



50 



INDEX. 



Currency: Page. 

• Depreciated *. . . . 40 

Now fiat 39 

System 15 

Currency and redemption fund. 39 

Currency, budget and, bills 44 

Customs revenue, decline of 34 

Daadlock over confirmation of appointments by Senate, in case of 46 

Debt, bonded 37 

Decline of customs revenue ^ 34 

Defectives: 

Inadequate provision for 33 

Number of 33 

Defects in election laws 42 

Defects, insular authorities can remedy 25 

Defense, none in case of war 23 

Delay in trials 28 

Deposits, compulsory, by provinces and municipalities 38 

Depression, present 34 

Desire for education •. '28 

Desire for independence 21 

Deterioration in health service 31 

Deterioration in work; loss by methods employed in public works 40 

Deterioration of bureau of science 31 

Deterioration of roads and bridges 41 

Director, capable, of public works 40 

Disagreements, superficial 22 

Discharged Americans 16 

Diseases, preventable, increase in 31 

Dissatisfaction with justices of the peace 25 

Disturbances, Moro 24 

Domestic life 17 

Dominant party, elections controlled by 42 

Economic advantage of leprosy cure 32 

Education : 

Desire for 28 

Enthusiastic public support of 18 

Expense of, in 1920 28 

Expense of, per capita 29 

Expense of, per child 29 

Further, advocated. 21 

Growth of 28 

Higher, provided for 30 

Industrial, promoted 30 

Parents' attitude toward 28 

Educational advantages increased 17 

Educational progress 16 

Effect if free trade abolished 35 

Effect of free trade 34 

Effect of lack of nurses, etc. , on infant mortality 31 

Efficiency: 

Former 26 

Of administration in 1913 22 

Retrogression in 20 



INDEX. 51 

Page. 

Election, no disturbances by minority 42 

Election cases, fraudulent, number 42 

Election frauds, charges of 43 

Election laws, defects in 42 

Elections : 

Controlled by dominant party ' 42 

Family influence in 43 

General interest in 42 

Personalities versus principles in 43 

Embroidery, trade in 35 

English, importance of ■. 29 

Establishing teaching staffs, problems of 29 

Evasion of Jones bill 44 

Exchange : 

Losses from speculation in 39 

Rates of 40 

Expenditures: 

Excessive 36 

Increased taxation and 17 

Expense : 

Increase in Government 37 

Military, borne by United States 36 

Of education in 1920 28 

Of education per child 29 

Expert accountants, report of 38 

Export figures 35 

Failures, inexperience and not incapacity to blame for 45 

Family influence in elections 43 

Feudal system disappearing 19 

Filipinization rushed 17 

Filipino attitude toward courts 24 

Filipino majority, second period of legislation with 43 

Filipino woman, the 19 

Filipinos: 

Appreciation of mistake by 39 

Brave soldiers 18 

Christian, independence desired by 45 

Control of Government by 16 

Filling positions with high credit 18 

Gradual participation in Government 16 

,IIave marked capacity for government 45 

Reception by 12 

Supervision by, legislated '. 44 

Financial institutions, Americans and foreigners still control 19 

First period of legislation under Americans 42 

First schools 15 

Former efiiciency 26 

Fourth period, 1914-1921 ' 16 

Frauds, election, charges of 43 

Fraudulent election cases 42 

Free trade: 

Effect if abolished 35 

Effect of 34 



52 INDEX. 



Friendliness toward Americans 20 

General appreciation of American rule 45 

Good conduct, rewards for 27 

Good work done in public works; lack of supervision 40 

Government: 

Civil, established 15 

Control of, by Filipinos 16 

Credit impaired 39 

Expense, increase in 37 

Filipinos gradual participation in 16 

Filipinos have marked capacity for 45 

In business 42 

Involved bookkeeping of 36 

Most advanced representative, in Far East 19 

Not free from instability 45 

Philippine, business basis of, in 1905 35 

Present 20 

Spanish 13 

Government bonds and notes tax exempt 37 

Governor General, powers of, to be restored 46 

Governor General's authority, usm'pation of 23 

Govs. Taft and Wright 15 

Gross business, increase of, on which taxes collected 36 

Growth of education 28 

Growth of Philippine Railway business 33 

Health service: 

Deterioration in , . . 31 

Need of coordination in i 31 

Higher education provided for 30 

Hospitals 31 

Illiterate voters not safeguarded 42 

Improvements, suggested 25 

Inadequate Moro representation in local governments 24 

Increase in radicalism in legislation, third period 44 

Increase in taxation 36 

Independence: 

Desire for 21 

Desired by Christian Filipinos 45 

Frank statement opposing, difficult to get. 11 

Interest keen in 12 

Issues, lack of understanding on 21 

Legislation toward " 44 

Majority favor protected 21 

Not economically or defensively ready for 45 

Not justified at present 46 

Opposition to 21 

Protection not 45 

Industrial education promoted 30 

Industries 19 

Inefficiency of administration 26 

Inefficiency of public service 45 

Inexperience and not incapacity to blame for failures 45 

Inexperienced clerks 24 



INDEX. 53 

Page. 

Infant mortality 31 

Influence for good of various American institutions 22 

Influence in Orient of Philippine Islands self-government far-reaching 21 

Insane: 

Inadequate pccommodations for 32 

Legislation contemplated for 33 

Insane cases, no segregation of 32 

Inspection, lack of supervision and, to blame 22 

Instability, Government not free from 45 

Institutions, various American, influence for good of 22 

Instruction, efficient, importance of 29 

Insular authorities can remedy defects : 25 

Insurrection 15 

Intergovernmental charges 36 

Investigations made, personal administrative 11 

Irrigation, progress in; expenditures; future development 40 

Isolation colony essential at leper colony 32 

Iwahig penal colony 27 

Jails: 

Municipal 28 

Provincial 27 

Japan, demands by 13 

Japanese commerce, prior to 1600 13 

Japanese driven from Luzon 13 

Javanese Empire, secession from, 1400 12 

Jones bill: 

Approval of 16 

Evasion of 44 

Upholding of 46 

Judicial system 15 

Justice: 

Condition of, menace to stability 45 

Various courts of 24 

Justices of the peace, dissatisfaction with 25 

Lack of system 25 

Land registration, court, abolition 26 

Land titles 26 

Language 14 

Law, change in 36 

Laws, election, defects in 42 

Leaders still Spanish-trained and Spanish-speaking 22 

Legislation: 

Contemplated for insane 33 

Important, hurried 44 

New form of 15 

Second period of, with Filipino majority 43 

Third period, increase in radicalism in 44 

Toward independence 44 

Under Americans, first period of 43 

Legislative body, commission sole 15 

Legislative chambers, decorous 45 

Legislative powers 16 



54 INDEX. 

Leper colony: Page. 

Isolation colony essential at 32 

Necessity of segregation at 32 

Overcrowding of ^ 32 

Leprosy, recent curative discoveries for 32 

Leprosy cure: 

Economic advantage of 32 

Introduction of new methods vital in v 32 

Life, domestic ^ 17 

Limited suffrage 42 

Liquidation, slow, of bank's accounts probable 38 

Loans: 

Large, with inadequate security for bank 39 

Questionable 38 

Loss by methods employed in public works; deterioration in work 40 

Losses, bank 38 

Losses from speculation in exchange 39 

Lower courts, lack of confidence in 24 

Luzon, Japanese driven from 13 

Maintenance, construction and, of roads and bridges systematized in earlier 

periods ' 41 

Managers, banks, charges preferred against 38 

Manila: 

British occupation of 13 

Population of, 1600 13 

Railroad 33 

Taken 13 

Massacres of Chinese 13 

Medical facilities, shortage of 31 

Medical personnel, shortage of 31 

Medical school 30 

Mentality 18 

Methods, new, introduction of, vital in leprosy cure , 32 

Mileage, road 40 

Military expense borne by United States 36 

Military period, 1898-1901 -15 

Militia, Philippine Islands, recommendation United States train. . . .'. 23 

Mismanagement of branches of bank 39 

Mohammedanism, introduction of 12 

Money-order business, increase 33 

Moro disturbances 24 

Moro opinion 21 

Moro representation inadequate in local governments 24 

Mortality, infant, effect on 31 

Municipal jails 28 

Municipal revenues, provincial and 37 

Municipalities, compulsory deposits by provinces and 38 

Neglect of roads, lack of organization responsible in some provinces for 41 

Non-Christian, Pagan and 21 

Non-Christians and Americans in favor of United States control 45 

Notes, Government bonds and, tax exempt 37 

Notes of bank not honored 39 

Nurses, number of, to population 31 



IIs'DEX. 55 

Occupation: Page. 

American, periods of 15 

British, of Manila 13 

Progress since American 20 

Spanish, purpose of 13 

Occupations 18 

Opinion: 

Moro 21 

Press and public 29 

Public, uneducated 18 

Opposition to independence 21 

Order, public 24 

Orderly people, instinctively '. . . , 19 

Organization unimpaired 23 

Otis, Gen 15 

Pagan and non-Christian 21 

Parents ' attitude toward education 28 

Paris, treaty of 14 

Party dominant, elections controlled by 42 

Party in power intrenched 43 

Patriotism 17 

Peonage 25 

People, instinctively orderly 19 

Periods of American occupation 15 

Personal administrative investigations made 11 

Personalities versus principles in elections 43 

Personnel 10 

Medical, shortage of 31 

Philippine Government, business basis of, in 1905 35 

Philippine Islands self-government, far-reaching influence in Orient of 21 

Philippine Railway business, growth of 33 

Philippines: 

Borrowing capacity of 37 

Hitherto always dependent 12 

University of the : 30 

Policy, change in. not urged : 20 

Policy in Philippines, American 15 

Politics: 

In civil service 23 

Injection of, ciidl service 43, 45 

Population : 

Effect on, of various racial influences 14 

Number of nurses to 31 

Of Manila, in 1600 13 

Postal savings deposits, increase 33 

Powers, legislative 16 

Presidents, bank, inexperienced 38 

Press 18 

Press and public opinion 29 

Press correspondents 10 

Preventable diseases, increase in 31 

Prison methods 27 

Prisons 26 



56 INDEX. 

Progress: ' Page. 

Educational 16 

Since American occupation 20 

Unprecedented 18 

Prosperity, war 34 

Protected independence, majority favor 21 

Protection not independence 45 

Pro\dnces and municipalities, compulsory deposits by 38 

Provinces visited 11 

Provincial and municipal revenues. 37 

Provincial jails 27 

Public opinion uneducated 18 

Public order , 24 

Constabulary 23 

Public schools 15 

Public service: 

Inefficiency of 45 

Retrogression in * 22 

Public works: 

Capable director of 40 

Good work done in; lack of supervision 40 

Increase in 17 

Increase in cost of 40 

Laa-ge appropriation for 40 

Loss by methods employed in; deterioration in work 40 

Support of; increase desired 40 

Races 14 

Racial characteristics 17 

Racial influences, various, effect on population of 14 

Radicalism in legislation, third period, increase in 44 

Railway business, Philippine, growth of 33 

Rates of exchange 40 

Reception by Filipinos 12 

Reception, cordial 12 

Recommendation United States train Philippine Islands militia ' 23 

Red tape 22 

Redemption fund, currency and 39 

Registration, court of land, abolition 26 

Rehabilitation of credit 39 

Religions 19 

Remote places, confinement in 25 

Report of expert accountants 38 

Representation, Moro, inadequate in local governments 24 

Resources, bank, increase 33 

Responsibility, placing of 20 

Responsibility without authority, no United States 46 

Retrogression in efficiency 20 

Retrogression in public service 22 

Revenue : 

Analysis of. ' 37 

Customs, decline of 34 

Sources of 37 

Revenues: 

Increase of, past eight years 37 

Provincial and municipal , 37 



INDEX. 57 



Rewards for good conduct. 27 

Rights, civil, not understood. , 43 

Road mileage 40 

Roads: 

Favorable comparison of, with other countries 41 

Lack of organization responsible in some provinces for neglect of 41 

TraflSc in relation to 41 

Roads and bridges: 

Construction and maintenance of, systematized in earlier periods 41 

Deterioration of , 41 

Recent construction of 41 

Sanitation ' 18 

School: 

Constabulary 23 

Medical 30 

Of Tropical Medicine, reestablishment of 30 

School buildings 28 

Schools: 

First 15 

Percentage of population in 29 

Public 15 

Science, bureau of, deterioration of 31 

Secession from Japanese Empire, 1400 12 

Second period, 1901-1907 15 

Second period of legislation with Filipino majority 43 

Segregation, necessity of, at leper colony 32 

Self-government, far-reaching influence in Orient of 21 

Senate, deadlock over confirmation of appointments by. 46 

Separation, small percentage desire absolute 21 

Shortage of American teachers 29 

Society, patriarchal form of 43 

Spain controls islands 13 

Spain, foundations laid by 14 

Spanish colony, first — Cebu, Manila taken 13 

Spanish control, complete ^ 13 

Spanish government 13 

Spanish occupation, purpose of 13 

Speakers from younger generations 12 

Stability, condition of justice menace to 45 

Standards lowered through loss of American officers 23 

Status, present, to continue ' 46 

Suffrage, limited 42 

Sugar, export of, 1920 35 

Supervision and inspection, lack of, to blame 22 

Supervision by Filipinos legislated 44 

Supervision, lack of; good work done in public works 40 

Survey, cadastral 26 

System, lack of 25 

Taft and Wright, Govs 15' 

Tax exempt, Government bonds and notes 37 

Taxation: 

Increase in -36 

Increased, and expenditures 17 



58 INDEX. 

Taxes: ' Page, 

Comparison of per capita, with other countries 36 

Increase of gross business on which collected 36 

Per capita, 1913-1920 36 

Teachers: 

American — 

Means to encourage 30 

Shortage of 29 

Course in English for native, recommended 30 

Problem of finding 29 

Well trained, lack of 29 

Teaching staffs, problem of establishing 29 

Telegraph business, increase 33 

Term of confinement 27 

Third period, 1907-1913 15 

Third period, increase in radicalism in legislation 44 

Titles: 

Importance of 26 

Land 26 

Tonnage, no figures of, available 34 

Trade: 

Free, effect if abolished 35 

Free, effect of 34 

In embroidery ." 35 

Statistics, comparative 34 

With United State, proportion of 34 

Traffic in relation to roads 41 

Trained bank man brought from United States 38 

Transportation 16 

Treaty of Paris 14 

Trials, delay in 28 

Tribute 13 

Tropical Medicine, reestablishment of School of 30 

Uneducated, public opinion , 18 

United States, conquest by, 1898 14 

University of the Philippines 30 

University statistics 28 

Usurpation of Governor Generals authority 23 

Voters, illiterate, not safeguarded 42 

War, no defense in case of 23 

War prosperity 34 

Well-trained teachers, lack of 29 

Woman, the Filipino 19 

Women's clubs 19 

Wright. Taft and. Govs 15- 

Works, public: 

Capable director of 40 

Good work done in; lack of supervision 40 

Increase in 17 

Increase in cost of 40 

Large appropriations for 40 

Loss by methods employed in; deterioration in work 40 

Support of; increase desirable 40 

Younger generation, speakers from 12^^ 

o 



